1 Work Session Agenda Washington State Parks and Recreation

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Work Session Agenda Washington State Parks and Recreation Commission

March 21, 2018 Evergreen State Fairgrounds 4-H Building, 14405 179th Avenue S.E., Monroe, WA 98272

Commissioners: Chair Ken Bounds, Vice Chair Cindy Whaley, Secretary Patricia Lantz, Michael Latimer, Diana Perez, Steve Milner and Mark O. Brown. Director: Donald Hoch

Time: Opening session will begin as shown; all other times are approximate.

Public Comment: This is a work session between staff and the Commission. The public is invited but no public comment will be taken. No decisions will be made by the Commission at the work session.

9:00 a.m. CALL TO ORDER – Cindy Whaley, Commission Vice Chair  Call of the roll  Introduction of Staff  Changes to agenda  Logistics

9:10 a.m. NAVY UPDATE – Mike Sternback, Assistant Director and Jessica Logan, SEPA Official  This item provides an update on the status of Navy interest in use of State Parks for training purposes

10:00 a.m. GOVERNORS POLICY ADVISOR– Jon Snyder, Policy Advisor on Outdoor Recreation and Economic Development  This item provides the Commission an overview of the efforts made within the state and nationally over the past year in outdoor recreation.

10:45 a.m. BREAK

11:00 a.m. WASHINGTON STATE PARKS FOUNDATION – John Floberg, Executive Director  This item provides the Commission an update on the Foundation’s current and planned activities for 2018.

11:45 a.m. LUNCH

12:30 p.m. COMMUNITY- BASED PROJECTS AND SPECIAL ACTIVITY PERMITS – Peter Herzog, Assistant Director and Mike Sternback, Assistant Director  This item provides the Commission with an overview of current and potential community-based park improvement projects and anticipated updates to the project review process.

1:00 p.m. LAKE SAMMAMISH DEVELOPMENT AGREEMENT – Peter Herzog, Assistant Director

 This item outlines the public planning process staff anticipates conducting to guide preparation and environmental review of a development agreement with the City of Issaquah.

1:20 p.m. MARKETING UPDATE – Todd Tatum, Business Development Manager, Darleen Muhly, Management Analyst and Holly Wood, Marketing Program Manager  This item provides the commission an overview of analytical processes used by the staff in developing and evaluating performance of agency marketing plans and activities.

2:10 pm BREAK

2:20 p.m. WALLACE FALLS CAMP – Randy Kline, Parks Planner  This item provides the Commission an overview of key management issues identified for Wallace Falls State Park as part of the park’s land classification and management planning process.

3:00 p.m. STAFF REPORTS

4:00 p.m. EXECUTIVE SESSION

5:00 p.m. ADJOURN

Commission Meeting Agenda Washington State Parks and Recreation Commission

March 22, 2018 Evergreen State Fairgrounds 4-H Building, 14405 179th Ave. S.E., Monroe, WA 98272

Commissioners: Chair Ken Bounds, Vice Chair Cindy Whaley, Secretary Patricia Lantz, Michael Latimer, Diana Perez, Steve Milner and Mark O. Brown. Director: Donald Hoch

Time: Opening session will begin as shown; all other times are approximate.

Order of Presentation: In general, each agenda item will include a presentation, followed by Commission discussion and then public comment. The Commission makes decisions following the public comment portion of the agenda.

Public Comment: Comments about topics not on the agenda are taken during General Public Comments.

Comments about agenda topics will be taken with each topic.

If you wish to comment at a meeting, please fill out a comment card and provide it to staff at the sign in table. The Chair will call you up to the front at the appropriate time. You may also submit written comments to the Commission by emailing them to [email protected] by 5 p.m. March 16, 2018.

9:00 a.m. CALL TO ORDER – Ken Bounds, Commission Chair  Flag Salute  Call of the roll  Introduction of Staff  Recognition of State and Local Officials  Approval of the Agenda  Approval of minutes of previous meetings: January 25, 2018, Montesano

9:10 a.m. COMMISSIONER REPORTS

9:50 a.m. DIRECTOR REPORT

10:05 a.m. RECOGNITION  Service Pins o Ricky Blank, 45 years, Parks o David Jaquish, 40 years, state and Parks o Ted Morris, 40 years, state and Parks o Eric Watilo, 35 years, state  Gold Star Awards

10:30 a.m. PUBLIC COMMENTS: Pre-Arranged Speakers  None

10:30 a.m. GENERAL PUBLIC COMMENTS: Topics not on the agenda

11:10 a.m. REQUESTED ACTION  Item E-1: Moran and Obstruction Pass State Parks Long-Term Boundary Revision This item asks the Washington State Parks and Recreation Commission to consider adding three properties, totaling approximately 358 acres, to the long-term park boundary of Moran and Obstruction Pass State Parks and to amend the land classifications for both parks. This item advances the Commission’s strategic goal, “Develop amenities and acquire lands that advance transformation.”

11:40 a.m. REQUESTED ACTION  Item E-2: Fort Ebey State Park – Land Classification Revision This item asks the Washington State Parks and Recreation Commission to consider modifying land classifications for Fort Ebey State Park to accommodate bike use on three trails. This item advances the Commission’s strategic goal, “Provide recreation, cultural, and interpretive opportunities people will want.”

12:10 p.m. LUNCH

12:40 p.m. REQUESTED ACTION  Item E-3 Fee Policy Revision and Delegation This item asks the Washington State Parks and Recreation Commission to consider revisions to Fee Policy 37-13-1 and to fully delegate the setting of camping fees to the Director. This item advances the Commission’s strategic goal, “Adopt a business approach to park system administration.”

1:20 p.m. REQESTED ACTION  Item E-4: Real Estate Policy Revisions & Delegations of Authority This item asks the Washington State Parks and Recreation Commission to consider approving updated and streamlined versions of its two primary real estate policies and to make minor policy revisions to the Commission’s delegations of signature authority as needed to support these real estate policies. This item advances the Commission’s strategic goal, “Adopt a business approach to park system management.”

1:45 p.m. BREAK

2:00 p.m. REPORT  Item E-5: Iron Horse State Park Trail – Renaming Effort/Trail Update This item reports to the Washington State Parks and Recreation Commission the current status of the process to rename the Iron Horse State Park Trail (which includes the John Wayne Pioneer Trail) and a verbal update on recent trail management activities. This item advances the Commission’s strategic goal, “Provide recreation, cultural, and interpretive opportunities people will want.”

2:45 p.m. REQUESTED ACTION  Item E-6: 2019-2021 Washington Wildlife and Recreation Program State Parks Category This item asks the Washington State Parks and Recreation Commission to consider a list of projects for which staff will seek grant funding from the Washington Wildlife and Recreation Program’s State Parks category. This item advances the Commission’s strategic goal, “Develop amenities and acquire lands that advance transformation.” This item was originally introduced at the Commission’s January 25, 2018 meeting. The Commission anticipates resuming deliberation of this item at its March 22, 2018 regular business meeting in Monroe, Washington.

3:45 p.m. REPORT  Item E-7 Financial Update This item reports to the Washington State Parks and Recreation Commission on the status of: 1) State Parks’ 2017-19 biennium operating and capital budget expenditures, 2) Parks Renewal and Stewardship Account (PRSA) revenue, and 3) State Parks’ 2018 supplemental budget requests. This item advances the Commission’s strategic goal: “Adopting a business approach to park system administration.”

4:15 p.m. REPORT  Item E-8 Legislative Update This item reports on the status of issues, and bills affecting State Parks during the 2018 session of the Washington State Legislature. This item advances the Commission’s strategic goal, “Demonstrating that all Washingtonians benefit from their state parks.”

4:45 p.m. ADJOURN

The services, programs and activities of the Washington State Parks and Recreation Commission are covered by the Americans with Disabilities Act (ADA). If you need special accommodations to participate in this meeting, please contact the Commission assistant Becki Ellison, at (360) 902-8502 or [email protected]. Accommodation requests should be received at least five business days prior to the meeting to ensure availability. Please provide 14- day notice for requests to receive information in an alternative format and for ASL/ESL interpretation. Item E-1: Moran and Obstruction Pass State Park Long-Term Boundary Revision - Requested Action

EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to consider adding three properties, totaling approximately 358 acres, to the long- term park boundary of Moran and Obstruction Pass State Parks and to amend the land classifications for both parks. This item advances the Commission’s strategic goal, “Develop amenities and acquire lands that advance transformation.”

SIGNIFICANT BACKGROUND INFORMATION: In 1920, Robert Moran, a retired shipbuilder and former mayor of the City of Seattle, donated 2,732 acres of land and water to the Parks and Recreation Commission. This became the fourth, and by far the largest, park in the budding state parks system. Continued donations by Moran and other acquisitions over the years

5 expanded the park - currently 5,424 acres - to its position now as the largest state park in Western Washington.

Obstruction Pass State Park was formerly managed by the Department of Natural Resources and has been under the care of Washington State Parks since 2005. Obstruction Pass is an 80-acre primitive camping park on the south end of Orcas Island, south of Moran State Park. The park is one of the few spots on Orcas Island with access to more than one mile of publicly owned saltwater shoreline.

Since the late 1990s, The Washington State Parks and Recreation Commission has been working to develop land classifications and long-term park boundaries for each of its parks and properties through an effort known as Classification and Management Planning (CAMP). Land classifications are essentially management zones that prescribe the kinds of facilities and activities that can occur in different parts of a state park. They range from the most restrictive Natural Area Preserves, which are reserved for scientific or educational purposes, to the least restrictive Recreation Areas, which allow for higher intensity recreation facilities such as campgrounds or indoor accommodations. Appendix 1 includes more details on State Parks land classifications.

Setting a long-term park boundary involves broadly considering holdings within and around a park and identifying lands that suitably advance the park’s recreation and conservation mission. Realizing a long-term park boundary can be accomplished through land donations, exchanges, management agreements, or purchases. A long-term park boundary also identifies lands that do not advance a park’s mission, and are therefore appropriate for surplus. Since the 1990s, the Commission has adopted land classifications and long-term park boundaries for approximately three quarters of its parks and properties.

The Commission first approved a CAMP for Moran and Obstruction Pass State Parks in September 1997. It was the fourth state park to go through the process. The park’s CAMP was revised in September 2002 to resolve trail use management issues. The CAMP process has evolved a little over time, but because Moran’s was completed so early, the long-term park boundary concept was not yet fully developed. Other than a connection between Moran and Point Lawrence, the only properties included in the long-term boundaries were ones that were clearly inholdings, like the Jones Property at Moran, or the property separating the two parts of Point Lawrence.

In 2017, the owners of three properties bordering Moran and Obstruction Pass State Parks contacted staff to see whether their properties might be good additions to the state parks. Staff communicated with those landowners, with the Lummi Nation, and also with a local land trust to further investigate the properties. Additionally, staff held a public workshop on November 29th on Orcas Island to collect public comments on whether the properties should be added to long- term park boundaries.

Most public comments were very supportive of the possibility of State Parks acquiring the three properties. Some said that State Parks acquisition would prevent private developers from sub- dividing the parcels and building new homes. Some people, though, did not support a State Parks acquisition, believing that the lands should stay in private ownership and remain subject to property taxes.

Figure 1 shows the location of the three properties being considered for inclusion in the long- term boundaries of Moran and Obstruction Pass State Parks. The Youngren Property and the Wilcox Property are both located adjacent to Moran and the Spring Bay Property is adjacent to Obstruction Pass.

Youngren Property The Youngren Property is made up of five parcels, totaling approximately 247 acres directly west of Moran State Park (Appendix 3). The property includes a 4 bedroom/4-bathroom house, a caretaker house, a log cabin, studios, a barn, a powered mill, a salmon hatchery, trout ponds, a stream, and meadows. The property also includes a large flat area, something that is rare within the existing state park. The fish hatchery located within the Youngren property could provide opportunities to partner with the Lummi Nation on management of the hatchery.

The Youngren Property is currently for sale. If it were to be purchased by a private party, the property could impact the views from park trails. The Lummi Nation is interested in purchasing most of the Youngren Property, but there may be opportunities to partner with them on acquisition or management of the property.

Figure 1: Moran and Obstruction Pass State Parks Vicinity

Wilcox Property

The Wilcox Property is made up of three parcels, totaling approximately 55 acres’ northeast of Moran (Appendix 4). The property is currently undeveloped. It includes a road that goes down to the beach that could allow park trails to connect to the water, which they cannot within our current ownership. The property would also provide new opportunities to expand the park’s trail system.

Spring Bay Property The Spring Bay Property is made up of four parcels, totaling approximately 56 acres (Appendix 5). The property was used as a bed and breakfast, and includes a large house with five rooms as well as two smaller cabins. One of the cabins is currently used as a rental. Additionally, the property includes trails that connect to the trails in the park, and could also provide park users with easier access to the water than they have in the current park. The owners of the Spring Bay property are former California State Parks rangers, and may be willing to donate a portion of the value of the property to State Parks to ensure that it becomes part of Obstruction Pass.

STAFF RECOMMENDATION: Staff recommends adding the Youngren Property and the Wilcox Property to the long-term boundary of Moran State Park and the Spring Bay Property to the long-term boundary of Obstruction Pass State Park.

Land Classification Staff recommends that the properties be classified as shown in Appendix 6 and as described below: 1. Youngren Property – Staff recommends classifying flatter areas on the western portion of the property as Recreation Areas to allow for medium-to-high intensity recreational activities such as parking, cabins, and camping. Staff recommends classifying the steeper areas closer to the existing park Resource Recreation to allow low-to-medium intensity uses, such as trails. 2. Wilcox Property – Staff recommends classifying the majority of the property Natural Forest Area, consistent with the classifications in adjacent parklands. The current road on the property is recommended to be classified Resource Recreation to allow it to be used as part of the park’s multi-use trail system. 3. Spring Bay Property – Staff recommends that the developed portion of the property be classified as a Recreation Area to allow for medium-to-high intensity recreation facilities. An area closer to the road is also recommended as a Recreation Area. This classification allows for medium to high-intensity development including parking and campgrounds. The area of the property closest to the existing park is recommended to be classified a Natural Forest Area, consistent with the classification in the existing park. The eastern part of the property is recommended to be classified Resource Recreation to provide a buffer between the Recreation Areas and the adjacent neighborhood.

At Moran State Park staff also recommends changing the current classification of an existing trail corridor through the park from Natural Forest Areas to Resource Recreation, as shown in Appendix 6, to allow for the possibility of the trail being multi-use in the future. Further trail planning is needed to determine whether bicycle use of the trail would be appropriate, but this land classification change would make it possible. Staff also recommends changing a small area on the shoreline from Natural Forest to Resource Recreation to allow for a potential backcountry campsite. This site was cleared by the previous owner, and could provide a nice amenity to park trail users.

At Obstruction Pass State Park staff recommends changing the classification of the existing area south of the park from Natural Forest Area to Resource Recreation because it includes a dock that would likely be retained if the property we acquired. Staff also recommends extending the long-term park boundary south to include the park’s existing buoys.

LEGAL AUTHORITY: RCW 79A.05.030 Powers and duties – Mandatory WAC 352-16-020 Land Classification System

SUPPORTING INFORMATION: Appendix 1: Washington State Parks Land Classification System Appendix 2: Moran and Obstruction Pass State Parks Existing Land Classification and Long- Term Boundary Appendix 3: Youngren Property Connection to Moran State Park Appendix 4: Wilcox Property Connection to Moran State Park Appendix 5: Spring Bay Property Connection to Obstruction Pass State Park Appendix 6: Proposed Land Classifications

REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Amend the long-term park boundaries of Moran and Obstruction State Parks to include the Youngren Property, the Wilcox Property, and the Spring Bay Property, as shown in Appendix 6 and as recommended by staff 2. Amend land classifications for Moran and Obstruction Pass State Parks as shown in Appendix 6 and as recommended by staff 3. Affirm that long-term boundary and land classification decisions are for Commission policy direction only and should not affect private property values, be used as an indication of a property owner’s willingness to sell, or be used as a basis for making state or local government regulatory, permitting, or zoning decisions on private land holdings.

Author(s)/Contact: Sanh Ho, Parks Planner [email protected] (360) 902-8645

Reviewer(s): Jessica Logan, SEPA REVIEW: Pursuant to WAC 197-11-310 and WAC 197-11-340, staff issued a “Determination of Non-Significance” for the staff recommendation finding that the action proposed by Commission staff was minor and would result in no probable significant adverse environmental impacts. Christeen Leeper, Fiscal Impact Statement: Adoption of this requested action for approval of a long-term boundary and land classification scheme has no fiscal impact at this time. Costs associated with future implementation of these actions may have capital and operating budget implications. These costs will be assessed and identified when future actions are identified and if needed, be included in future operating and capital budget requests. Michael Young, Assistant Attorney General: Reviewed January 31, 2018 Peter Herzog, Assistant Director

Approved for Transmittal to Commission

______Don Hoch, Director

APPENDIX 1 Washington State Parks Land Classification System

Washington Administrative Code Establishing Land Classification System

WAC 352-16-020 Land classification system. State park areas are of statewide natural, cultural, and/or recreational significance and/or outstanding scenic beauty. They provide varied facilities serving low- intensity, medium intensity, and high intensity outdoor recreation activities, areas reserved for preservation, scientific research, education, public assembly, and/or environmental interpretation, and support facilities. They may be classified in whole or part as follows:

(1) Recreational areas are suited and/or developed for high-intensity outdoor recreational use, conference, cultural and/or educational centers, or other uses serving large numbers of people.

(2) Resource recreation areas are suited and/or developed for natural and/or cultural resource-based medium-intensity and low-intensity outdoor recreational use.

(3) Natural areas are designated for preservation, restoration, and interpretation of natural processes and/or features of significant ecological, geological or paleontological value while providing for low-intensity outdoor recreation activities as subordinate uses.

(4) Heritage areas are designated for preservation, restoration, and interpretation of unique or unusual archaeological, historical, scientific, and/or cultural features, and traditional cultural properties, which are of statewide or national significance.

(5) Natural forest areas are designated for preservation, restoration, and interpretation of natural forest processes while providing for low-intensity outdoor recreation activities as subordinate uses, and which contain: (a) Old-growth forest communities that have developed for one hundred fifty years or longer and have the following structural characteristics: Large old-growth trees, large snags, large logs on land, and large logs in streams; or (b) Mature forest communities that have developed for ninety years or longer; or (c) Unusual forest communities and/or interrelated vegetative communities of significant ecological value.

(6) Natural area preserves are designated for preservation of rare or vanishing flora, fauna, geological, natural historical or similar features of scientific or educational value and which are registered and committed as a natural area preserve through a cooperative agreement with an appropriate natural resource agency pursuant to chapter 79.70 RCW and chapter 332-60 WAC.

WAC 352-16-030 Management within land classifications. (1) The director shall develop management guidelines for each land classification listed in WAC 352-16-020. The guidelines shall provide specific direction for each classification, outlining the philosophy of each classification, its appropriate physical features, location, allowed and prohibited activities, and allowed and prohibited developments. (2) Nothing in this section shall be construed to allow uses that are otherwise prohibited, nor prohibit uses that are otherwise expressly allowed, by the commission, this code, or by statute.

Land Classification Management Guidelines Recreation Areas

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks State Parks Recreation State Parks State Parks State Parks Recreation Areas may State Parks Recreation Areas State Parks Recreation Areas Areas are to respond to Recreation Areas Recreation Areas allow and provide for a wide variety shall provide appropriate Recreation are suited and/or the human needs for physiographic generally are made, of indoor and outdoor day, facilities and services for the Areas developed for high- readily available areas features such as not found. They shall weekend and vacation activities. participation and enjoyment of intensity outdoor for outdoor recreation topography, soil be located Provision may be made for high high concentrations of outdoor recreational use, and facilities to type, drainage, throughout the state intensity participation in camping, recreationists and/or conference, cultural congregate for etc., shall be with primary picnicking, trail use, water sports, participants in indoor and/or educational education, artistic adaptable to emphasis to service winter sports, group field games, educational, cultural and artistic centers, or other expression and other varied types of major centers of and other activities for many activities. A high degree of uses serving large ennobling pursuits. intensive uses and urban populations people Off-trail equestrian and/or development is anticipated. numbers of people. They are to provide a development. An and/or outstanding bicycle use may be appropriate in Facilities may include road and variety of outdoor attractive natural recreational tourist selected areas if approved by the parking networks, swimming recreational, setting is attractions. Scenic commission. Activities requiring beaches, full service marinas, educational, artistic, desirable, and inspirational high levels of social interaction are trails, bathhouses, artificial and cultural however, human- values shall be encouraged. lakes and pools, play fields, opportunities to large made settings are considered but are large sanitary and eating numbers of participants. acceptable. There secondary to the site facilities; standard and utility Primary emphasis is on are no specific adaptability and campgrounds, stores, picnic the provision of quality size criteria. population criteria. grounds, group shelters, recreational services When part of a large conference centers, and facilities with diverse park, environmental learning centers, secondary recognition recreation areas hostels, and administrative given to protection of should be sited in support facilities. the areas natural proximity to public qualities. roads and utilities.

Land Classification Management Guidelines Resource Recreation Areas

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks State Parks Resource State Parks State Parks State Parks Resource Recreation State Parks Resource State Parks Resource Recreation Recreation Areas are Resource Resource Recreation Areas provide opportunities for low- Recreation Areas Resource Areas are suited sites where the high Recreation Areas Areas may be and medium-intensity recreational development shall be Recreation and/or developed for quality of a particular have a variety of located anywhere in experiences including, but not limited permitted to the extent Areas natural and/or natural or cultural physiographic the state where to, picnicking, primitive camping, a necessary to serve allowed cultural resource- resource or set of features. While natural or cultural variety of recreational trail activities. Parking, sanitary based medium- and such resources is the they may contain factors produce land experiences, interpretive facilities, facilities, and other ancillary low-intensity lure for human areas of and water sites historic/cultural exhibits, nature developments and support recreational use. recreation. Thus, the environmental particularly suited for observation, photography, facilities should be rationale for recreation sensitivity, most recreation in a orienteering, kayaking, canoeing, constructed in a manner that is based on the value portions of each natural setting. floating, and fishing. Off-trail is consistent with the site's of attractive natural or area will be able to Access to these sites equestrian and/or bicycle use may be ability to manage cultural resources. withstand low- to should be reasonably appropriate in selected areas if environmental change. Management of these medium-intensity proximate to major approved by the commission. areas must stress the recreation use urban centers, but Basketball, tennis, organized group centrality of preserving without significant some access sporting activities requiring formal the quality of the environmental restriction may be sports fields, commercial-sized piers natural and cultural degradation. necessary to avoid and docks, standard and utility resources while overuse of camping, indoor accommodations allowing appropriate resources. Within and centers, developed swimming and sustainable levels large diverse parks, areas, and other similarly intense of human use and these areas should uses are not appropriate. Scientific enjoyment. be located at least a research is permitted. moderate distance from public roads and high use intensity areas, while still maintaining reasonable public access for their intended use.

Land Classification Management Guidelines Natural Areas

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks Natural State Parks Natural State Parks State Parks Natural State Parks Natural Areas provide State Parks Natural Area State Parks Areas are designated Areas are to respond Natural Areas Areas are not opportunities for outdoor recreation development shall be limited Natural Areas for preservation, to the human need for have a variety of "made", but rather on designated trails. Those trails may to facilities required for restoration, and readily available topography and currently exist due to be developed and used only to the health, safety and protection interpretation of "conservatories" of features to provide historical extent that they do not significantly of users and features natural processes nature and open a diversified circumstances that degrade the system of natural consistent with allowed and/or features of spaces. Emphasis is natural have resulted in little processes in a classified area. Hiking, activities. Facilities to significant ecological, directed toward nature environment with or no human non-groomed cross-country skiing, enhance public enjoyment geological or and the conservation interesting but not interference in the snowshoeing, or other trail uses of shall be limited to primitive paleontological value of native flora and necessarily unique natural environment. similar impact to natural systems and items such as trails, trail while providing for fauna, special flora and fauna, or Those areas most providing a compatible recreational structures and minor low-intensity outdoor geologic or geologic or desirable in terms of opportunity, may be permitted, after interpretive exhibits. All recreation activities paleontologic paleontologic physical features and consultation with appropriate local, improvements shall as subordinate uses. resources, and the features. Where size usually are state, federal and tribal resource harmonize with, and not natural amenities of classification is "found" and "held" management agencies, and upon a detract from, the natural the area. Human based on against creeping finding by the agency that such trails setting. Parking and other wants for other than biological encroachments and are not likely to significantly degrade trailhead facilities should be naturally existing considerations, raising land values. natural processes. Relocation of located outside of a educational and sites should They often become existing equestrian, bicycle, nordic classified area. recreational consist of land over used and "lost" track or other similar trails into a opportunities are areas large as populations natural area may be permitted upon a considered secondary enough to spread around them. finding by the director that such to nature's maintain natural As a part of the relocation is for the purpose of requirement for the biological overall system, these reducing overall resource impacts. All sustained processes in a areas should be trails may be moved, redesigned, maintenance of its nearly geographically closed and/or removed upon a finding natural balances, or undeveloped state spread throughout that their use is causing significant the preservation of and provide users the state. When degradation to the system of natural special geologic or with a feeling of classifying specific processes. Technical rock climbing paleontologic features. solitude and park areas, requires authorization by the tranquility, and an consideration must commission. Off-trail use for nature opportunity to view be given to the ability observation, photography, cross- nature in its to adequately country skiing, harvesting of "uncontrolled" manage the areas mushrooms and berries and similar form. They may be against undesirable uses are permitted to the degree that partially or wholly human they do not significantly degrade on land, encroachment. natural processes. Scientific subterranean, or research is permitted. part of the marine environment.

Land Classification Management Guidelines Heritage Areas

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks Heritage State Parks Heritage State Parks State Parks Heritage State Parks Heritage Area activities State Parks Heritage Area State Parks Areas are designated Areas are designated Heritage Areas Areas usually are shall generally be limited to those development shall generally Heritage for preservation, to preserve and/or vary in size and located where they directly associated with the be limited to that necessary Areas restoration, and interpret selected physiographic are found or the interpretation of the area or feature, for the protection and interpretation of areas or features for makeup according feature exists. and the education of the patrons. interpretation of the area or outstanding, unique the education and to their location However, in some Picnicking, recreational trails, and feature, and the education or unusual enjoyment of the and reason for instances relocation other low- to medium-intensity and safety of the patrons. archaeological, public, an area's existence. Historic or re-creation of recreation uses may be allowed if Sanitary facilities, recreation historical, scientific, intrinsic cultural value, landscapes may artifacts, resources they do not detract from the principal trails, and picnicking facilities and/or cultural and/or for scientific require relatively or facilities is purpose of the area, its setting, may be provided in a manner features, and research. large acreage possible. In these structures, sites and objects. which does not detract from traditional cultural while situations they may the aesthetic, educational or properties, which are archaeological be located in environmental quality of the of statewide or sites may be appropriate settings area, its setting, structures, national significance. measured in and concentrated sites or objects, or, if square feet. near major applicable, its value for population centers scientific research. and along primary travel routes.

Land Classification Management Guidelines Natural Forest Areas

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks Natural State Parks Natural State Parks State Parks Natural State Parks Natural Forest Areas provide State Parks Natural Forest State Parks Forest Areas are Forest Areas are Natural Forest Forest Areas may opportunities for outdoor recreation on Areas development shall be Natural designated for places where human Areas have a be located designated recreation trails. Those trails limited to facilities required Forest preservation, access to and variety of anywhere in the may be developed and used only to the for health, safety and Areas restoration, and interpretation and topographic and state where natural extent that they do not significantly protection of users and interpretation of enjoyment of natural vegetative factors produce degrade the system of natural forest features consistent with natural forest forest processes are conditions. They forest vegetative processes in a classified area. Careful allowed activities. Facilities processes while limited to those are generally large cover. These areas design of recreation trails should match to enhance public enjoyment providing for low- activities and facilities enough (300 or are not "made", but intended uses, to maintain consistency shall be limited to trails, trail intensity outdoor that do not more acres) to rather currently with the purpose and philosophy of the structures, and minor recreation activities significantly degrade contain one or exist due to classification. Hiking, non-groomed interpretive exhibits. All as subordinate natural forest more distinct and historical cross-country skiing, snowshoeing, or improvements shall uses, and which processes. Public relatively intact circumstances that other trail uses of similar impact to natural harmonize with, and not contain: access into these vegetative have resulted in systems and providing a compatible detract from, the natural (a) Old-growth areas emphasizes communities. little or no human recreational opportunity, may be setting. Parking and other forest communities appreciation of nature Smaller areas may interference in permitted, after consultation with trailhead facilities should be that have through experiencing be appropriate if natural forest appropriate local, state, federal and tribal located outside of a developed for 150 nature. The principal representative of a progression. As a resource management agencies, and classified area. years or longer and function of these areas unique or unusual part of an overall upon a finding by the agency that such have the following is to assist in forest community. system, these areas trails are not likely to significantly degrade structural maintaining the state's Desirably, they are should be natural forest processes. Relocation of characteristics: bio-diversity while part of a large geographically existing equestrian, bicycle, nordic track Large old-growth expanding human system of open spread throughout or other similar trails into a natural forest trees, large snags, understanding and space, wildlife the state, area may be permitted upon a finding by large logs on land, appreciation of natural habitat, and recognizing that the director that such relocation is for the and large logs in values. vegetative maintenance of bio- purpose of reducing overall resource streams; or (b) communities that diversity is one of impacts. All trails may be moved, Mature forest provide a good the primary redesigned, closed and/or removed upon communities that opportunity for functions of their a finding that they are causing significant have developed for long-term classification. When degradation to the system of natural 90 years or longer; ecosystem classifying specific forest processes. Technical rock climbing or Unusual forest sustainability. park areas, requires authorization by the commission. communities and/or consideration must Off-trail use for nature observation, cross- interrelated be given to the country skiing, photography, harvesting of vegetative ability to adequately mushrooms and berries and similar uses communities of manage the areas are permitted to the degree that they do significant against undesirable not significantly degrade natural forest ecological value. human processes. Scientific research is encroachment. permitted.

Land Classification Management Guidelines Natural Area Preserves

TITLE DEFINITION PHILOSOPHY PHYSICAL LOCATION ACTIVITIES DEVELOPMENTS FEATURES

Washington State Parks Natural State Parks Natural State Parks Natural State Parks Natural Area State Parks Natural Area State Parks Natural Area State Parks Area Preserves are Area Preserves are Area Preserves have Preserves may be located Preserves provide Preserves development shall Natural Area designated for sites where human a variety of anywhere in the state opportunities for scientific be limited to access facilities Preserves preservation of rare access is limited to topographic and where natural ecological research and education for permitted activities and or vanishing flora, educational and vegetative conditions. systems or significant about natural systems, structures to inhibit general fauna, geological, scientific purposes. They are generally geologic features exist. geologic features, public access. No other natural historical or The principal function of large enough (300 or These areas are not sensitive, rare, threatened facilities or structures are similar features of these areas is to more acres) to contain "made", but rather exist due or endangered species or permitted. scientific or preserve natural one or more distinct to historical circumstances communities. educational value ecosystems or geologic and intact ecological that have resulted in little or Recreational use of and which are features of statewide communities. Smaller no human interference in existing or relocated trails registered and significance. Public areas may be the natural system. As a may be permitted, committed as a access for recreation appropriate if part of an overall system, provided that it can be natural area preserve must be subordinate to representative of a these areas should be clearly demonstrated that through a the principal function of unique or unusual geographically spread such use does not cooperative the classification. ecological community throughout the state. degrade the system of agreement with an or geologic feature. natural processes appropriate natural They may be partially occurring in the preserve. resource agency or wholly on land, Otherwise, trails are pursuant to chapter subterranean, or part limited to administrative, 79.70 RCW and of the marine scientific and organized chapter 332-60 environment. educational activities and WAC. Desirably, they are uses. No other activities part of a large system are permitted. of open space, wildlife habitat, and vegetative communities that provide a good opportunity for long- term ecosystem sustainability.

Land Use and Land Classification Compatibility Matrix – Facilities

Recreation Resource Recreation Heritage Natural/Natural Forest Area Natural Area Preserve*

Amphitheater P C C N N

Archery/Target Range C C N N N

Camping - Std and Util P N C N N

Camping - Primitive P P C N N

Camping - Adirondack P C N N N

Camping - Horse-oriented C C N N N

Camping - Water Trail P P C N N

Children's Play Area P C C N N

Day Use Picnic - Tables P P C N N

Day Use Picnic - Group Shelter P N C N N

Day Use Lodges/Centers P N C N N

Environmental Learning Centers C N C N N

Equestrian Facilities C C C N N

Fields - Informal Play/Mowed P C C N N

Indoor Accommodations P N C N N

Interpretive - Centers P N P N N

Interpretive - Kiosks P P P C N

Interpretive Trail P P P P C

Interpretive - Signs P P P P C

Parking - Vehicles P P C N N

Roads P P C N N

Land Use and Land Classification Compatibility Matrix – Facilities (Continued)

Recreation Resource Recreation Heritage Natural/Natural Forest Area Natural Area Preserve*

Sanitary: Comfort Stations P N C N N

Sanitary: Composting/Vault P P C C N

Sports Fields C N N N N

Skiing - Alpine Facilities C C N N N

Swimming Facilities P N C N N

Trails - Hiking P P P P C

Trails - Mountain Biking P C C N** N

Trails - Equestrian C C C N** N

Trails - Nordic Track Skiing P P C N** N

Trails - C-C skiing P P P P C

Trails - Snowmobile P C C N** N

Trails - Paved non-motor P C C C N

Water: Docks/Piers > 10 boats P N C N N

Water: Docks/Piers - < 10 boats P P C C N

Water: Launch Ramps P C N N N

Water: Hand Launch Areas P P C C N

Water: Mooring Buoys P P C C N

P (Permitted) - Use permitted with normal agency design review C (Conditional) - Use may be permitted, but conditioned to assure design is compatible w/purpose of land classification and abutting classification objectives. N (Not Permitted)- Use not permitted. NA - Not Applicable * All uses in a Natural Area Preserve must be specifically approved by the Park and Recreation Commission as part of a management plan. **Relocation of existing trails into a natural or natural forest area is permitted per WAC 352-32-070(3) and WAC 352-32-075(2)(b).

Land Use and Land Classification Compatibility Matrix – Activities

Recreation Resource Recreation Heritage Natural/Natural Forest Area Natural Area Preserve*

Farming/Orchards C C C N N

Filming/Special Events P P P C N

Grazing C C C N N

Harvesting - Edible Fruiting Bodies P P P P N

Harvesting - Mushrooms P P P P N

Harvesting - Shellfish P P P P N

Harvesting - Fish P P P P N

Harvesting - Algae, etc. P P P P N

Haying P P P N N

Metal Detecting P P C N N

Orienteering P P C N N

Ocean Beach Driving P C N N N

Off-Trail: Equestrian C C C N N

Off-Trail: Hiking P P P P N

Off-trail biking C C C N N

Paragliding P P C N N

Recreation Concession Areas C C C N N

Technical Rock Climbing P P C C N

Land Use and Land Classification Compatibility Matrix – Activities (Continued)

Recreation Resource Recreation Heritage Natural/Natural Forest Area Natural Area Preserve*

Water: Jet Skiing P C N N N

Water: Kayak/Canoeing P P P C N

Water: Power Boating P C N C N

Water: White Water Boating P P C C N

Water: Sailing P P P C N

Water: Skiing P C N N N

Water: Swimming P P P P N

Water: Wind Surfing P C C N N

Winter: Alpine Skiing C C N N N

Winter: C-C Skiing (off-trail) P P P P C

Winter: Mushing/Sled Dogs C C C N N

Winter: Snowshoeing P P P P C

Winter: Snowmobiling (off-trail) P P C N N

Wood Debris Collection P P P N N

P (Permitted) - Use permitted with normal agency design review C (Conditional) - Use may be permitted with Commission concurrence, but conditioned to assure compatibility w/purpose of land classification and abutting classifications. N (Not Permitted)- Use not permitted. NA - Not Applicable * All uses in a Natural Area Preserve must be specifically approved by the Park and Recreation Commission as part of a management plan. **Relocation of existing trails into a natural or natural forest area is permitted per WAC 352-32-070(3) and WAC 352-32-075(2)(b).

APPENDIX 2 Moran and Obstruction Pass State Park Existing Land Classification and Long-Term Boundary (Approved February, 2000)

APPENDIX 3 Youngren Property Connection to Moran State Park

APPENDIX 4 Wilcox Property Connection to Moran State Park

APPENDIX 5 Spring Bay Property Connection to Obstruction Pass State Park

APPENDIX 6 Proposed Land Classifications

Item E-2: Fort Ebey State Park – Land Classification Revision – Requested Action

EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to consider modifying land classifications for Fort Ebey State Park to accommodate bike use on three trails. This item advances the Commission’s strategic goal, “Provide recreation, cultural, and interpretive opportunities people will want.”

SIGNIFICANT BACKGROUND INFORMATION: In 2006, a Classification and Management Plan (CAMP) was completed for the Central Whidbey Area, including Fort Ebey State Park. The north part of Fort Ebey was classified as a Natural Area for reasons outlined in the agenda item:

A stand of old growth forest in the north end of the park is designated as natural. This decision was based on an evaluation by the Natural Heritage Program of the Department of Natural Resources that identified this stand as having characteristics that, if larger, would have qualified the stand as a Natural Forest Area.

Both Natural and Resource Recreation classifications protect natural and cultural resources. Natural areas are intended for low intensity recreation, while and Resource Recreation areas allow for medium intensity recreation.

The trails within Fort Ebey State Park are part of The Kettles Trails, a network of trails across state and county land built over many decades and enjoyed by hikers, equestrians, and cyclists. The Pacific Northwest Trail, Kyle’s Kettle, and Grandpa Tree trails were originally built by the Central Whidbey Trails Council and designed to be multiple use, with mountain biking as a primary function. Prior to the CAMP, these trails had been used for many years by cyclists. However, the Natural Area classification adopted in 2006 precluded continued mountain bike use on these trails.

In the 11 years since the CAMP was completed, staff has received requests to reopen these trails to bikes. The requests involve 1.2 miles of existing trails in the north end of the park (Appendix 1). The user group inquiries have been for bike use only, with no request to modify, widen, or expand the trails. Opening these trails would provide benefits for cyclists, including a safe connection between the Kettles Trail system and the beach without using the road, as well as a connection from the neighborhood north directly into the park’s trail system.

Bicycle use on these trails would not be expected to have significant impacts on wildlife (and habitat), soils, or vegetation. In this area, any impacts would likely be limited to nesting birds. While there is limited information on impacts of mountain bikers in comparison to hikers, some studies have indicated that mountain bikers may be less likely to flush birds than hikers (Spahr 1990). Soils in this area have good drainage and existing trails hold up well to bike use. Vegetation would not be directly impacted by mountain bike use, since no new trails are being proposed. Bikers and pedestrians do however have the potential to bring in non-native vegetation. Ongoing non-native species management will be needed regardless of the types of trail users.

In reviewing the original CAMP documents, including public comments at the different stages of the plan, there was some concern over protection of the bluff trails and bike use. The existing land classification does not allow bikes on the bluffs, and staff is not recommending any classification changes in this area.

STAFF RECOMMENDATION: Staff recommends re-classifying the existing trail width on the 1.2 miles of trail identified in Appendix 1from Natural to Resource Recreation to allow for bike use. Furthermore, staff recommends following the process outlined in administrative rules (WAC 352-32-075) to develop a recommendation to the Director on the use of bikes on this trail segment. Since there would be no expansion of the trail system or modification of the current trails, establishing Resource Recreation corridors as described should not impact the integrity of the natural landscape in the proposed areas. Areas beyond the trail width would remain classified as Natural Area to provide a greater level of resource protection (Appendix 2). The park manager should continue to monitor use, user feedback, and trail impacts and take appropriate management actions, which may include limiting bike access at certain times or closing trails to bike use.

LEGAL AUTHORITY: Chapter 352-16 WAC – Naming of State Park Areas and the Land Classification System, Chapter 352-32-075 WAC – Use of nonmotorized cycles or similar devices

SUPPORTING INFORMATION:

Appendix 1: Proposed Land Classification Changes Appendix 2: Washington State Parks Land Classification System

REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Amend land classifications for Fort Ebey State Park as shown in Appendix 1. 2. Direct staff to proceed with the trail use evaluation process outlined in Chapter 352-32- 075 WAC and consider approving use of bicycles in newly established Resource Recreation corridors as appropriate.

Author(s)/Contact: Andrew Fielding, Resource Steward [email protected] (509) 665-4312

Christeen Leeper, Fiscal Impact Statement: There would be minimal operating impact with the approval to adopt land classification of Recreation Resource for specified trails at Fort Ebey. Michael Young, Assistant Attorney General: December 20, 2017 Peter Herzog, Assistant Director

Approved for Transmittal to Commission

______Don Hoch, Director

APPENDIX 1 Proposed Land Classification Changes

APPENDIX 2 Washington State Parks Land Classification System

WAC 352-16-020 Land classification system. State park areas are of statewide natural, cultural, and/or recreational significance and/or outstanding scenic beauty. They provide varied facilities serving low-intensity, medium intensity, and high intensity outdoor recreation activities, areas reserved for preservation, scientific research, education, public assembly, and/or environmental interpretation, and support facilities. They may be classified in whole or part as follows:

(1) Recreational areas are suited and/or developed for high-intensity outdoor recreational use, conference, cultural and/or educational centers, or other uses serving large numbers of people.

(2) Resource recreation areas are suited and/or developed for natural and/or cultural resource-based medium-intensity and low-intensity outdoor recreational use.

Land Classification Management Guidelines Recreation Areas

TITLE DEFINIT PHILOSO PHYSIC LOCAT ACTIVI DEVELOPM ION PHY AL ION TIES ENTS FEATU RES

Washin State State Parks State State State State Parks gton Parks Recreation Parks Parks Parks Recreation State Recreation Areas are Recreatio Recreatio Recreatio Areas shall Parks Areas are to respond n Areas n Areas n Areas provide Recreati suited to the physiogra generally may allow appropriate on and/or human phic are made, and facilities and Areas developed needs for features not provide services for for high- readily such as found. for a wide the intensity available topograph They variety of participation outdoor areas for y, soil shall be indoor and enjoyment recreation outdoor type, located and of high al use, recreation drainage, througho outdoor concentrations conferenc and etc., shall ut the day, of outdoor e, cultural facilities to be state with weekend recreationists and/or congregate adaptable primary and and/or educationa for to varied emphasis vacation participants in l centers, education, types of to service activities. indoor or other artistic intensive major Provision educational, uses expression uses and centers of may be cultural and serving and other developm urban made for artistic large ennobling ent. An populatio high activities. A numbers pursuits. attractive ns and/or intensity high degree of of people. They are to natural outstandi participati development provide a setting is ng on in is anticipated. variety of desirable, recreatio camping, Facilities may outdoor however, nal picnicking include road recreational human- tourist , trail use, and parking , made attraction water networks, educational settings s. sports, swimming , artistic, are Scenic winter beaches, full and cultural acceptabl and sports, service opportuniti e. There inspiratio group marinas, trails, es to large are no nal field bathhouses, numbers of specific values games, artificial lakes participants size shall be and other and pools, . Primary criteria. considere activities play fields, emphasis is d but are for many large sanitary

on the secondar people and eating provision y to the Off-trail facilities; of quality site equestrian standard and recreational adaptabil and/or utility services ity and bicycle campgrounds, and populatio use may stores, picnic facilities n criteria. be grounds, with When appropriat group shelters, secondary part of a e in conference recognition large selected centers, given to diverse areas if environmental protection park, approved learning of the areas recreatio by the centers, natural n areas commissi hostels, and qualities. should be on. administrative sited in Activities support proximit requiring facilities. y to high public levels of roads and social utilities. interactio n are encourage d.

Land Classification Management Guidelines Resource Recreation Areas

TITLE DEFINIT PHILOSO PHYSIC LOCAT ACTIVITI DEVELOPM ION PHY AL ION ES ENTS FEATU RES

Washin State State Parks State State State Parks State Parks gton Parks Resource Parks Parks Resource Resource State Resource Recreation Resource Resource Recreation Recreation Parks Recreatio Areas are Recreatio Recreati Areas Areas Resourc n Areas sites where n Areas on Areas provide development e are suited the high have a may be opportuniti shall be Recreati and/or quality of a variety of located es for low- permitted to on developed particular physiogra anywher and the extent Areas for natural natural or phic e in the medium- necessary to and/or cultural features. state intensity serve allowed cultural resource or While where recreational activities. resource- set of such they may natural experiences Parking, based resources contain or including, sanitary medium- is the lure areas of cultural but not facilities, and and low- for human environm factors limited to, other ancillary intensity recreation. ental produce picnicking, developments recreation Thus, the sensitivit land and primitive and support al use. rationale y, most water camping, a facilities for portions sites variety of should be recreation of each particula recreational constructed in is based on area will rly suited trail a manner that the value be able to for experiences is consistent of withstand recreatio , with the site's attractive low- to n in a interpretive ability to natural or medium- natural facilities, manage cultural intensity setting. historic/cul environmental resources. recreation Access tural change. Manageme use to these exhibits, nt of these without sites nature areas must significan should observation stress the t be , centrality environm reasonab photograph of ental ly y, preserving degradati proximat orienteerin the quality on. e to g, of the major kayaking, natural and urban canoeing,

cultural centers, floating, resources but some and fishing. while access Off-trail allowing restrictio equestrian appropriate n may be and/or and necessar bicycle use sustainable y to may be levels of avoid appropriate human use overuse in selected and of areas if enjoyment. resources approved . Within by the large commissio diverse n. parks, Basketball, these tennis, areas organized should group be sporting located activities at least a requiring moderate formal distance sports from fields, public commercial roads -sized piers and high and docks, use standard intensity and utility areas, camping, while indoor still accommod maintaini ations and ng centers, reasonab developed le public swimming access areas, and for their other intended similarly use. intense uses are not appropriate . Scientific research is permitted.

Land Classification Management Guidelines Natural Areas

TITLE DEFINIT PHILOSO PHYSIC LOCATI ACTIVI DEVELOPM ION PHY AL ON TIES ENTS FEATUR ES

Washin State State Parks State State State State Parks gton Parks Natural Parks Parks Parks Natural Area State Natural Areas are Natural Natural Natural development Parks Areas are to respond Areas Areas are Areas shall be Natural designated to the have a not provide limited to Areas for human variety of "made", opportuni facilities preservati need for topograph but rather ties for required for on, readily y and currently outdoor health, safety restoration available features to exist due recreation and protection , and "conservat provide a to on of users and interpretat ories" of diversifie historical designate features ion of nature and d natural circumsta d trails. consistent natural open environm nces that Those with allowed processes spaces. ent with have trails may activities. and/or Emphasis interesting resulted in be Facilities to features of is directed but not little or no developed enhance significant toward necessaril human and used public ecological nature and y unique interferen only to enjoyment , the flora and ce in the the extent shall be geological conservatio fauna, or natural that they limited to or n of native geologic environm do not primitive paleontolo flora and or ent. significan items such as gical fauna, paleontolo Those tly trails, trail value special gic areas degrade structures and while geologic or features. most the minor providing paleontolo Where desirable system of interpretive for low- gic classificat in terms natural exhibits. All intensity resources, ion is of processes improvements outdoor and the based on physical in a shall recreation natural biological features classified harmonize activities amenities considerat and size area. with, and not as of the area. ions, sites usually Hiking, detract from, subordinat Human should are non- the natural e uses. wants for consist of "found" groomed setting. other than land areas and cross- Parking and naturally large "held" country other trailhead existing enough to against skiing, facilities

educational maintain creeping snowshoe should be and natural encroach ing, or located recreationa biological ments and other trail outside of a l processes raising uses of classified opportuniti in a nearly land similar area. es are undevelop values. impact to considered ed state They natural secondary and often systems to nature's provide become and requiremen users with over used providing t for the a feeling and "lost" a sustained of as compatibl maintenanc solitude populatio e e of its and ns spread recreation natural tranquility around al balances, , and an them. As opportuni or the opportunit a part of ty, may preservatio y to view the be n of special nature in overall permitted, geologic or its system, after paleontolo "uncontro these consultati gic lled" areas on with features. form. should be appropriat They may geographi e local, be cally state, partially spread federal or wholly throughou and tribal on land, t the state. resource subterrane When managem an, or part classifyin ent of the g specific agencies, marine park and upon environm areas, a finding ent. considerat by the ion must agency be given that such to the trails are ability to not likely adequatel to y manage significan the areas tly against degrade undesirabl natural e human processes. encroach Relocatio ment. n of

existing equestrian , bicycle, nordic track or other similar trails into a natural area may be permitted upon a finding by the director that such relocation is for the purpose of reducing overall resource impacts. All trails may be moved, redesigne d, closed and/or removed upon a finding that their use is causing significan t degradati on to the system of natural processes. Technical rock

climbing requires authorizat ion by the commissi on. Off- trail use for nature observati on, photograp hy, cross- country skiing, harvestin g of mushroo ms and berries and similar uses are permitted to the degree that they do not significan tly degrade natural processes. Scientific research is permitted.

Land Classification Management Guidelines Heritage Areas

TITLE DEFINIT PHILOSO PHYSIC LOCAT ACTIVI DEVELOPM ION PHY AL ION TIES ENTS FEATUR ES

Washin State State Parks State State State State Parks gton Parks Heritage Parks Parks Parks Heritage Area State Heritage Areas are Heritage Heritage Heritage development Parks Areas are designated Areas Areas Area shall generally Heritage designated to preserve vary in usually activities be limited to Areas for and/or size and are shall that necessary preservati interpret physiogra located generally for the on, selected phic where be limited protection and restoration areas or makeup they are to those interpretation , and features for according found or directly of the area or interpretat the to their the associated feature, and ion of education location feature with the the education outstandin and and exists. interpretat and safety of g, unique enjoyment reason for However ion of the the patrons. or unusual of the existence. , in some area or Sanitary archaeolo public, an Historic instances feature, facilities, gical, area's landscape relocatio and the recreation historical, intrinsic s may n or re- education trails, and scientific, cultural require creation of the picnicking and/or value, relatively of patrons. facilities may cultural and/or for large artifacts, Picnickin be provided in features, scientific acreage resources g, a manner and research. while or recreation which does traditional archaeolo facilities al trails, not detract cultural gical sites is and other from the properties, may be possible. low- to aesthetic, which are measured In these medium- educational or of in square situations intensity environmental statewide feet. they may recreation quality of the or national be uses may area, its significan located be setting, ce. in allowed if structures, appropria they do sites or te not objects, or, if settings detract applicable, its and from the value for concentra principal

ted near purpose scientific major of the research. populatio area, its n centers setting, and structures, along sites and primary objects. travel routes.

Land Classification Management Guidelines Natural Forest Areas

TITLE DEFINIT PHILOSO PHYSIC LOCATI ACTIVI DEVELOPM ION PHY AL ON TIES ENTS FEATU RES

Washin State State Parks State State State State Parks gton Parks Natural Parks Parks Parks Natural Forest State Natural Forest Natural Natural Natural Areas Parks Forest Areas are Forest Forest Forest development Natural Areas are places Areas Areas Areas shall be Forest designated where have a may be provide limited to Areas for human variety of located opportunit facilities preservati access to topograp anywhere ies for required for on, and hic and in the outdoor health, safety restoration interpretati vegetativ state recreation and protection , and on and e where on of users and interpretat enjoyment condition natural designate features ion of of natural s. They factors d consistent natural forest are produce recreation with allowed forest processes generally forest trails. activities. processes are limited large vegetative Those Facilities to while to those enough cover. trails may enhance providing activities (300 or These be public for low- and more areas are developed enjoyment intensity facilities acres) to not and used shall be outdoor that do not contain "made", only to limited to recreation significantl one or but rather the extent trails, trail activities y degrade more currently that they structures, and as natural distinct exist due do not minor subordinat forest and to significan interpretive e uses, processes. relatively historical tly exhibits. All and which Public intact circumsta degrade improvements contain: access into vegetativ nces that the shall (a) Old- these areas e have system of harmonize growth emphasizes communi resulted in natural with, and not forest appreciatio ties. little or no forest detract from, communit n of nature Smaller human processes the natural ies that through areas interferen in a setting. have experiencin may be ce in classified Parking and developed g nature. appropria natural area. other trailhead for 150 The te if forest Careful facilities years or principal represent progressio design of should be

longer and function of ative of a n. As a recreation located have the these areas unique or part of an trails outside of a following is to assist unusual overall should classified area. structural in forest system, match characteri maintainin communi these intended stics: g the state's ty. areas uses, to Large old- bio- Desirably should be maintain growth diversity , they are geographi consistenc trees, while part of a cally y with the large expanding large spread purpose snags, human system of throughou and large logs understandi open t the state, philosoph on land, ng and space, recognizin y of the and large appreciatio wildlife g that classificat logs in n of natural habitat, maintenan ion. streams; values. and ce of bio- Hiking, or (b) vegetativ diversity non- Mature e is one of groomed forest communi the cross- communit ties that primary country ies that provide a functions skiing, have good of their snowshoe developed opportuni classificat ing, or for 90 ty for ion. When other trail years or long-term classifyin uses of longer; or ecosyste g specific similar m park impact to Unusual sustainab areas, natural forest ility. considerat systems communit ion must and ies and/or be given providing interrelate to the a d ability to compatibl vegetative adequatel e communit y manage recreation ies of the areas al significant against opportunit ecological undesirabl y, may be value. e human permitted, encroach after ment. consultati on with appropriat e local, state, federal

and tribal resource managem ent agencies, and upon a finding by the agency that such trails are not likely to significan tly degrade natural forest processes. Relocatio n of existing equestrian , bicycle, nordic track or other similar trails into a natural forest area may be permitted upon a finding by the director that such relocation is for the purpose of reducing overall resource impacts.

All trails may be moved, redesigne d, closed and/or removed upon a finding that they are causing significan t degradati on to the system of natural forest processes. Technical rock climbing requires authorizat ion by the commissi on. Off- trail use for nature observatio n, cross- country skiing, photograp hy, harvesting of mushroo ms and berries and similar uses are permitted to the

degree that they do not significan tly degrade natural forest processes. Scientific research is permitted.

Land Classification Management Guidelines Natural Area Preserves

DE PHI PHYSI LO AC DEVELO TITLE FINITION LOSOPHY CAL CATION TIVITIES PMENTS FEAT URES

Washin State Parks State Parks State State Parks State Parks State Parks gton Natural Natural Area Parks Natural Natural Natural State Area Preserves are Natural Area Area Area Parks Preserves sites where Area Preserves Preserves Preserves Natural are human Preserv may be provide developme Area designated access is es have located opportunitie nt shall be Preserv for limited to a anywhere s for limited to es preservation educational variety in the state scientific access of rare or and of where research facilities vanishing scientific topogra natural and for flora, fauna, purposes. phic ecological education permitted geological, The and systems or about activities natural principal vegetat significant natural and historical or function of ive geologic systems, structures similar these areas is conditi features geologic to inhibit features of to preserve ons. exist. features, general scientific or natural They These sensitive, public educational ecosystems are areas are rare, access. No value and or geologic general not threatened other which are features of ly large "made", or facilities or registered statewide enough but rather endangered structures and significance. (300 or exist due to species or are committed Public more historical communitie permitted. as a natural access for acres) circumstan s. area recreation to ces that Recreationa preserve must be contain have l use of through a subordinate one or resulted in existing or cooperative to the more little or no relocated agreement principal distinct human trails may with an function of and interferenc be appropriate the intact e in the permitted, natural classification ecologi natural provided resource . cal system. As that it can agency commu a part of an be clearly pursuant to nities. overall demonstrate chapter Smalle system, d that such 79.70 RCW r areas these areas use does

and chapter may be should be not degrade 332-60 approp geographic the system WAC. riate if ally spread of natural represe throughout processes ntative the state. occurring in of a the unique preserve. or Otherwise, unusua trails are l limited to ecologi administrati cal ve, commu scientific nity or and geologi organized c educational feature. activities They and uses. may be No other partiall activities y or are wholly permitted. on land, subterr anean, or part of the marine environ ment. Desira bly, they are part of a large system of open space, wildlif e habitat, and vegetat ive

commu nities that provide a good opport unity for long- term ecosyst em sustain ability.

Land Use and Land Classification Compatibility Matrix – Facilities

Recreation Resource Heritage Natural/Natural Natural Area Recreation Forest Area Preserve*

Amphitheater P C C N N

Archery/Target C C N N N Range

Camping - Std P N N N N and Util

Camping - P P C N N Primitive

Camping - P C N N N Adirondack

Camping - C C N N N Horse-oriented

Camping - Water P P C N N Trail

Children's Play P C C N N Area

Day Use Picnic - P P C N N Tables

Day Use Picnic - P N C N N Group Shelter

Day Use P N C N N Lodges/Centers

Environmental C N C N N Learning Centers

Equestrian C C C N N Facilities

Fields - Informal P C C N N Play/Mowed

Indoor P N C N N Accommodations

Interpretive - P N P N N Centers

Interpretive - P P P C N Kiosks

Interpretive Trail P P P P C

Interpretive - P P P P C Signs

Parking - P P C N N Vehicles

Roads P P C N N

Land Use and Land Classification Compatibility Matrix – Facilities (Continued)

Recreation Resource Heritage Natural/Natural Natural Area Recreation Forest Area Preserve*

Sanitary: Comfort P N C N N Stations

Sanitary: P P C C N Composting/Vault

Sports Fields C N N N N

Skiing - Alpine C C N N N Facilities

Swimming P N C N N Facilities

Trails - Hiking P P P P C

Trails - Mountain P C C N** N Biking

Trails - C C C N** N Equestrian

Trails - Nordic P P C N** N Track Skiing

Trails - C-C P P P P C skiing

Trails - P C C N** N Snowmobile

Trails - Paved P C C C N non-motor

Water: P N C N N Docks/Piers > 10 boats

P P C C N

Water: Docks/Piers - < 10 boats

Water: Launch P C N N N Ramps

Water: Hand P P C C N Launch Areas

Water: Mooring P P C C N Buoys

Land Use and Land Classification Compatibility Matrix – Activities

Recreation Resource Heritage Natural/Natural Natural Area Recreation Forest Area Preserve*

Farming/Orchards C C C N N

Filming/Special P P P C N Events

Grazing C C C N N

Harvesting - P P P P N Edible Fruiting Bodies

Harvesting - P P P P N Mushrooms

Harvesting - P P P P N Shellfish

Harvesting - Fish P P P P N

Harvesting - P P P P N Algae, etc.

Haying P P P N N

Metal Detecting P P C N N

Orienteering P P C N N

Ocean Beach P C N N N Driving

Off-Trail: C C C N N Equestrian

Off-Trail: Hiking P P P P N

Off-trail biking C C C N N

Paragliding P P C N N

Technical Rock P P C C N Climbing

Land Use and Land Classification Compatibility Matrix – Activities (Continued)

Recreation Resource Heritage Natural/Natural Natural Area Recreation Forest Area Preserve*

Water: Jet P C N N N Skiing

Water: P P P C N Kayak/Canoeing

Water: Power P C N C N Boating

Water: White P P C C N Water Boating

Water: Sailing P P P C N

Water: Skiing P C N N N

Water: P P P P N Swimming

Water: Wind P C C N N Surfing

Winter: Alpine C C N N N Skiing

Winter: C-C P P P P C Skiing (off-trail)

Winter: C C C N N Mushing/Sled Dogs

Winter: P P P P C Snowshoeing

Winter: P P C N N Snowmobiling (off-trail)

Wood Debris P P P N N Collection

Item E-3: Fee Policy Revision and Delegation – Requested Action

EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to consider revisions to Fee Policy 37-13-1 and to fully delegate setting of camping fees to the Director. This item advances the Commission’s strategic goal, “Adopt a business approach to park system administration.”

SIGNIFICANT BACKGROUND INFORMATION: In 2013, The Washington State Parks and Recreation Commission adopted Policy 37-13-1 ‘State Parks Policy of Fees and Rates for Programs and Services. The Fee Policy was intended to formalize the Commission’s position on fees and rates under the Commission’s Transformation Strategy, which prescribed a transition to market-based pricing.

The policy was adopted in the context of an agency budget that saw significant reductions in tax support. The central feature of the policy was variable pricing, a practice widely used in the hospitality industry to price facilities and services according to the principles of supply and demand.

The existing Fee Policy defines terms, introduces the concept of variable pricing based on demand factors, and sets specific camping prices. Over the past 5 years, experience has shown that the policy might benefit from the addition of a philosophical statement of intent and from the elimination of procedures aimed at setting prices. Currently, adjustment of camping prices beyond a certain range requires a Commission-level policy revision. Camping prices have not changed since 2015, and have not been adjusted relative to inflation and costs of park system operation.

STAFF RECOMMENDATION:

Staff recommends three main revisions to the policy:  Clarify the objectives of fees and rates  Replace specific formulas on variable pricing with strategic guidance  Fully delegate rate-setting for camping to the Director or designee

Clarify the objectives of fees and rates The current policy lacks a statement of philosophical intent. Staff recommends the following new statement to give broad policy guidance for fees.

Section C(1): It is the policy of the Washington State Parks and Recreation Commission to charge fees for facilities and services as part of a comprehensive mix of public and private support for the park system. Fees are charged to help recover costs of operation, balance revenue and service goals, and help accomplish park management objectives. However, the state park system provides broad public benefits to all state residents, the cost of which cannot be recuperated through user fees alone.

Replace specific formulas on variable pricing with strategic guidance Section 8 of the current Fee Policy features highly prescriptive language that specifies campsite prices, seasons, length of stay, limits on increases and discounts, etc. The policy reads somewhat like a procedure in stipulating the price of certain campsites and provides a narrow range of pricing flexibility; any deviation requires a Commission policy revision. The proposed language would replace procedural elements with policy guidance. This would streamline the administrative process of fee-setting. Staff recommends striking Section 8 and replacing it with the following new dynamic language as Section 5, providing broad policy guidance: Section 5: Camping Fees: Through periodic adjustment, rates charged for camping should generally keep pace with increased costs and the rates charged by other providers for comparable services. Rates should reflect the unique quality of a state park camping experience, and should offer multiple price- points so that an entry-level experience is accessible to campers. Rates for higher occupancy sites, should in general, be set higher than rates for less occupied sites.

Delegate rate-setting for camping to the Director or designee Staff recommends that the Commission fully delegate price-setting for camping fees to the Director or designee. (Other fees are already delegated to the Director.) The Director would set prices based on the approved policy guidance and report periodically on how the program is performing. This will allow staff the flexibility to respond entrepreneurially to market conditions, such as discounting to fill last-minute vacancies at campsites or cabins. It will also enable staff to take advantage of the dynamic pricing features of our next-generation campground reservation software, which comes online later this year.

Section 2: Except with respect to camping, once a fee facility, program or service has been established or designated by the Commission as being subject to a fee, the Delegation: The Director or designee is authorized to establish, the base rate (if not established by the Commission) increase, reduce, waive, or otherwise adjust the rate for said fee program fees and rates, consistent with this Policy or any other Commission-adopted policy related to fee programs or services. The Director shall report periodically to the Commission on compliance with this policy, performance of fee-based programs and pending fee increases.

Other relatively minor housekeeping revisions are also proposed for the Fee Policy, attached as Appendix 1.

Camping Prices The price of camping in Washington state parks has not changed since early 2015. Consequently, rates have not been adjusted for inflation or other costs of park operation. Staff is considering a modest increase in the price of peak-season (summer) camping fees. This increase is expected to yield up to $1.3 million per year. Staff is also considering measures to improve how demand- based pricing is reflected in our popular/basic/economy campsite distribution. Staff will make final decisions on any price increases or modifications under the delegation of authority requested of the Commission in this item. Price revisions under consideration by the Director for the 2019 calendar year are outlined in Appendix 2.

LEGAL AUTHORITY: The Washington State Parks and Recreation Commission has statutory authority to charge fees under RCW 79A.05.070(6) “The commission may…Charge fees for services, utilities, and use of facilities as the commission shall deem proper…” These fees are established primarily under WAC 352-32-250. General guidance for fees is further established under Policy 37-13-1 ‘State Parks Policy of Fees and Rates for Programs and Services.’ Under RCW 79A.05.075, the Commission has broad authority to delegate powers and duties to the Director.

SUPPORTING INFORMATION: Appendix 1: Fee Policy 37-13-01 as proposed (annotated) Appendix 2: 2019 Camping fee revisions under consideration by the Director

REQUESTED ACTION FROM COMMISSION: That the Washington State Parks and Recreation Commission: 1. Adopt the revisions proposed in Fee Policy 37-13-1; and 2. Renumber the policy as Fee Policy 37-18-1.

Author(s)/Contact: Todd Tatum, Business Development Program Manager [email protected] (360) 902-8631 Reviewer(s): Jessica Logan, SEPA REVIEW: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800(14)(f) and WAC 197-11-800(19). Chris Leeper, Fiscal Impact Statement: There is no immediate fiscal impact resulting from the approval of these revisions. However, future decisions could support efforts to generate additional revenue for the agency. Michael Young, Assistant Attorney General: Approved 2/13/2018. Peter Herzog, Assistant Director

Approved for Transmittal to Commission

______Don Hoch, Director

APPENDIX 1 Fee Policy 37-13-1 as Proposed (Annotated)

37-13-1 State Parks Policy on Fees & Rates for Programs and Services

A. PURPOSE - The purposes of the Policy on Fees and Rates are: 1. To provide guidance and principles for the establishment of fees and the setting of rates for programs and services at Washington's state parks consistent with a purpose-driven agency revenue generation program that will financially sustain Washington State Parks as a primarily fee-for-service agency. 2. To identify the roles and responsibilities of the Commission, and the Director, and staff for establishment of fees, setting rates, and adjusting fees and rates. 3. To broaden the range of fees and rates for programs and services as needed to increase occupancy, utilization, and revenue. 4. To foster an entrepreneurial approach to delivering fee programs and services, consistent with legislative mandate and budgetary policy. 5. To underscore the importance of a transparent public process policy for instituting fees and setting rates.

B. DEFINITIONS 1. FEE. As used in this Policy, "fee" refers to a charge for a permit or service at a state park. 2. RATE. As used in this Policy, "rate" (or "price") means the amount of money charged as a fee for a permit or service 3. PROGRAMPERMIT. As used in this Policy, "permit" means authorization to use land or a facility at a state park (such as a campsite, cabin, yurt, picnic site, shower facility, cooking facility, conference facility, ELC, watercraft launch facility, moorage facility, etc.) or authorization to engage in some activity within a state park (such as filming, commercial recreation, wood debris collection, special events, public assembly, etc.). 4. FEE PROGRAMPERMIT/SERVICE. As used in this Policy, "fee permit", "fee service", or "fee permit/service" means a permit and/or service for which a fee is charged. 5. BONUS. As used in this Policy, bonus refers to any additional benefits that may attend to any particular fee permit/service, including but not limited to packaged permits/services, enhanced privileges, or other considerations, whether packaged into the rate at the same price or offered for an optional additional charge. 6. PACKAGING (or BUNDLING): As used in this Policy, refers to the practice of combining or separating fee permits/services as a consumer incentive. This may include the sale of two (or future) permits/services at a discount or the recombination of permits/services that together are worth more to the consumer than the sum of the parts. This may also take the form of passes, coupons, rebates, discounts (whether public or private) that may be used in conjunction with purchases across one or more seasons or across one or more categories of permits/services.

7. CAMPING a. SEASONS 1. SUMMER (PEAK) SEASON. Generally, May 15 through September 15. 2. SPRING/FALL (SHOULDER) SEASON. Generally, September 16 through October 31 and March 1 through May 14. 3. WINTER (OFF) SEASON. Generally, November 1 through February 28/29. b. SITE TYPE (facilities offered at the site): Primitive, standard, partial, and full utility campsites as defined in WAC 352-32-10. c. SITE TIER (location and amenities): 1. PREMIER POPULAR CAMPSITE. Any campsite designated by the Director or designee as being relatively more desirable within that park due to the site's location, amenities, historic occupancy rate, or other reason. 2. REGULAR BASIC CAMPSITE. Any campsite that is of typical popularity or not otherwise designated. 3. ECONOMY CAMPSITE. Any campsite designated by the Director or designee as being relatively less desirable within that park due to site's location, proximity to any non-conforming recreational use (highway, residential neighborhood, etc.) or due to the site's historical low occupancy rate.

C. Policy PRINCIPLES AND PHILOSOPHY1: 1. Charges: It is the policy of the Washington State Parks and Recreation Commission to generally charge a fee, within acceptable limits of liability, for each and every program or service offered except as otherwise required by statute. It is the policy of the Commission that all fee programs and services are self-sufficient in that the revenues earned from the program or service offset any and all costs to implement and manage the permit/service, excepting those permits/services that the Commission is required by statute to provide at no fee or at subsidized rates. It is the policy of the Washington State Parks and Recreation Commission to charge fees for facilities and services as part of a comprehensive mix of public and private support for the park system. Fees are charged to help recover costs of operation, balance revenue and service goals, and help accomplish park management objectives. However, the state park system provides broad public benefits to all state residents, the cost of which cannot be recuperated through user fees alone.

D. POLICY

2.1.The Commission establishes, adopts or otherwise confirms that fees Scope2: Fees shall be charged for the following programs and services: a. Use of group campsites b. Use of Water Trail Sites (Marine Trail Sites) c. Use of all forms of overnight accommodations and convenience camping facilities (cabins, yurts, vacation rentals, etc.) d. Use of Environmental Learning Centers (ELC's)

1 Adds an introductory intent statement about the importance and limitations of fees as part of agency funding. 2 Removes laundry list in favor of detailed listing in WAC. Reserves right to undertake pilot projects.

e. Special Events f. Use of boat moorage and launching facilities g. Use of Winter Recreation facilities (all types including Sno-Parks) h. Extended Stays Recreational Vehicle and Boat Storage (shoulder and off-season) j. Agency sponsored special events and activities. k. All other permits/services formally adopted through Washington Administrative Code (WAC) including but not limited to Section 352-32-250, and for pilot projects.

3.2.Except with respect to camping, once a fee, program or service has been established or designated by the Commission as being subject to a fee, the Delegation3: The Director or designee is authorized to establish, the base rate (if not established by the Commission) increase, reduce, waive, or otherwise adjust the rate for said fee program fees and rates, consistent with this Policy or any other Commission-adopted policy related to fee programs or services. The Director shall report periodically to the Commission on compliance with this policy, performance of fee-based programs and pending fee increases.4

3. Except with respect to camping fees, the Commission authorizes the Director or designee to designate new programs or services as being subject to a fee as detailed in this policy (including h, i, and j above) and requests that the Director report back to the Commission with findings and results from the implementation of these fee programs and services on an annual basis. Staff will additionally work with the agency's reservation system provider to produce customer occupancy data and reports as needed to improve occupancy of selected fee programs and services.

3. Market-Based Fees: In general, fees will be charged for programs and services and rates will be increased, proportionately, as demand for such program or services increases, and vice-versa. The Commission directs that rates must typically be set to recover all costs associated with the use of parks for non-recreation purposes. Fees and rates may be used to provide reasonable access to programs and services by low-income persons and organizations, people with disabilities, participants in education activities, and those persons who volunteer to work in the park system or who work under an agreement which benefits the park system and its visitors, when possible and within available funding. The Commission adopts the following, market based pricing strategies: a. Private Use Programs/Services: are those where the primary beneficiary is the individual, such as reserved vacation houses, yurts and cabins, and campsites. The pricing strategy is typically to recover all costs of permit/service and up to Fair Market Value, whichever is higher, with no subsidy. b. Mixed Use Programs/Services: are those where the primary beneficiary is the individual, with some public benefit (such as unreserved picnic areas, boat launches). The pricing strategy is typically to recover all costs of the program or service up to Fair Market Value if possible and appropriate; a subsidy (sub-market pricing) is possible if authorized as being consistent with the agency's revenue generation strategy.

3 Expands delegation to Director for camping and all other fees. 4 Promises reporting and analysis to Commission.

c. Public Use Programs/Services: are those where the primary beneficiary is the general public (vistas, interpretation sites, trails, school programs, cultural festivals). Pricing strategy is typically to fund through the Discover Pass, incidental fees, donations, grants, underwriting and/or authorized subsidy and as consistent with the agency's revenue generation strategy.

4. Fee Adjustments5: Rates for facilities and services will be reviewed periodically and adjusted as needed to keep pace with increased costs and market comparables. This pertains to fees other than camping, moorage and boat launch.

5. Camping Fees6: Through periodic adjustment, rates charged for camping typically should keep pace with increased costs and the rates charged by other providers for comparable services. Rates should reflect the unique quality of a state park camping experience, and should offer multiple price-points so that an entry-level experience is accessible to campers. Rates for higher occupancy sites, should in general be set higher than rates for less occupied sites.

6. Primitive Camping, Moorage, and Daily Boat Launch7: These fees shall be reviewed periodically and proposed for adjustment as allowed by the Office of Financial Management on behalf of the legislature, per citizen initiatives.

7. Commission Review: Fees and rates will be publicly reviewed by the Commission, and periodically evaluated for compliance with this policy. Fee Schedule: The Director shall maintain a current schedule of fees and rates on the agency's website.

8. Camping Fees and Rates8: The Commission shall establish fees and set base rates for primitive, standard, partial utility and full utility camp sites and any other program or service deemed appropriate by the Commission.

The Commission adopts the following fees together with the following base rate structures. All rates are per-night unless otherwise noted. All rates are weekday, peak season and for typical (REGULAR) camp sites as defined herein:

1. REGULAR-Primitive Site $12 2. REGULAR-Standard Site $25 3. REGULAR-Partial Utility Site $30 4. REGULAR-Full Utility Site $35

5 Describes approach to most fees (besides camping, moorage and boat launch). 6 Inserts direction for camping fees.

7 Addresses three activities that are legally considered ‘traditional functions of government’ and subject to legislative control, per AGO interpretations of I-601, I-695 and/or I-960.

8 Deletes overly prescriptive language that limits evolution of camping fee program.

Available Rate Adjustments: The Commission delegates to the Director or designee the authority to make adjustments to Commission adopted fees and rate structures within the following parameters. All rates/prices are per night unless otherwise noted and are cumulative.

1. PREMIER Site Increase (2-4 above) - up to $15 2. ECONOMY Site Discount (2-4 above)- up to $10 3. Spring/Fall Season Discount up to $10 4. Winter Season Discount up to $15 5. Week End/Holiday Increase up to $8 (standard sites) 6. Week End/Holiday Increase up to $15 (utility sites) 7. Extended Stay Discount As authorized through the Property Management Program

The Director or designee may modify or otherwise establish summer, spring/fall, and winter seasons as needed to accurately reflect the actual use season for any particular park.

Reservations, Cancellations, and Restocking Policy: The Commission delegates to the Director or designee the authority to establish reservation and site cancellation policies and schedules as needed to:

Encourage the responsible use of the central reservation system Progressively discourage or stop any abuse of the system by customers who purposely hold camping reservations or otherwise do not show or arrive for reserved sites Maximize occupancy and revenue yield from the inventory of state park facilities.

The Commission directs that procedures developed to implement this policy encourage customers to cancel their reservation as far in advance of the reservation date as needed to allow for the re-sale of the site and that penalties be levied against those customers whose actions result in the loss of public availability of a campsite or other reservation facility. As a customer service, the Director or designee may waive or otherwise reduce the charge for any reservation change, cancellation or no show transaction.

Length of Stay The Commission adopts the following maximum periods of stay for all types of camp sites and all other forms of overnight lodging (cabins, yurts, vacation rentals, etc.): Summer Season — up to 14 consecutive days Spring/Fall Season — up to 30 consecutive days Winter Season — up to 60 consecutive days Actual length of stay limit will be set on a park-by-park basis by the Director or designee and may vary by site, season or other appropriate criteria.

New Permits/Services The Director or designee is authorized to develop and implement new programs or services, bundle or un-bundle programs and services as needed to promote visitation, provide for higher use of park facilities, or to otherwise provide promotional or other incentives to park customers consistent with the agency's revenue generation strategy. Examples include the free use of certain park services (boat launch, moorage, additional campsites) with the purchase of other park services including Premier campsites. The Director or designee is authorized to develop and implement the use of available park property including partial or full utility camp sites and moorage facilities for the storage of Recreational Vehicles (RV's), boats or other types of personal property during the spring/fall and winter seasons provided the use does not adversely affect park resources or limit the camping or boating opportunities of the general public.

APPENDIX 2 2019 Camping Fee Adjustment Under Consideration By The Director

Current camping prices have been in effect since 2015. Meanwhile, inflation and other costs of park operation have increased. Staff is considering a price adjustment for inflation that would be limited to the peak season of May 15 to September 15, when demand for camping is highest. Eighty-four percent (84%) of annual camping occurs during peak season. The price of standard (tent) sites would increase by $2/night and partial and full-utility sites would increase by $5/night. This progressive approach would limit the impact on budget-conscious campers who tend to patronize standard sites and the lower-cost shoulder-season. The proposal could generate additional revenue of up to $1.3 million per year.

The chart below shows what peak season camping prices would become in calendar year 2019 (highlighted in yellow).

This modest adjustment is not expected to adversely affect demand. A 2017 camping customer survey showed a high affinity for state park camping:  Price perception: 73% said camping is “fair” or a “great bargain,” 23% said “somewhat expensive,” 4% said “very expensive.”  Repeat business: 91.5% said their likelihood of camping again is “high” or “very high.”

These results suggest that there is capacity to undertake the proposed fee increase for inflation without adversely impacting brand loyalty or revenue. State park customers see parks as a distinct niche in the camping marketplace. While sensitive to cost, customers see the park price/service proposition as a good value, and intend to continue to patronize state parks in the future.

In addition to the nominal price increase, staff is considering a review and redesignation of Popular, Basic and Economy campsite classifications based on the latest occupancy data. These designations were originally made in 2014 but updated data is now available. The current distribution of 20% Popular, 60% Basic and 20% Economy sites within each park would be re- designated and redistributed to better account for demand across the park system.

Item E-4: Real Estate Policy Revisions & Delegations of Authority – Requested Action

EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to approve updated and streamlined versions of the two primary real estate policies utilized to manage park land and to make minor policy revisions to the Commission’s delegations of signature authority as needed to support these real estate policies. This item advances the Commission’s strategic goal, “Adopt a business approach to park system management.”

SIGNIFICANT BACKGROUND INFORMATION: This agenda item is the sixth in a series of policy reviews that staff is bringing to the Commission for its consideration. This item is the fourth (and final in this series) policy request focusing on real estate practices, less-than-fee simple contracts and delegations of signature authority as needed to execute those contracts. In 1996, the Commission requested that staff prepare an administrative manual to capture in one document, the policies and procedures regarding management of State Parks’ land base. In 2001, the Commission first approved staff’s efforts through the adoption of the Land Authorization and Documentation System (LANDS) Manual. Since its initial adoption, the primary Commission policy from which the LANDS Manual derives its authority (55-06-1) has been updated by the Commission seven times.

In 2016 and 2017, efforts were initiated to repeal older or obsolete real estate policies and to consolidate still valid policies into more manageable documents. These efforts resulted in going from over a dozen policies to two proposed real estate polices. Policy 55-06-1 focuses on less- than-fee simple transactions (e.g., leases, easements and permits) and Policy 55-17-1 focuses on fee-simple transaction (real property acquisitions and disposals). The majority these recent staff efforts have been of a “housekeeping” nature. July of 2015 was the most recent time the Commission adopted significant new policy guiding real estate activities.

Staff recently completed a LEAN effort to improve the process for reviewing and approving second party applications for leases, permits, and easements for non-recreational use of park land and initiated a comprehensive update of the LANDS Manual for the first time since its adoption in 2001. Staff expects to complete the LANDS Manual updates pending Commission action on this item.

A third important part of Commission guidance on real estate activities is Commission Policy 25-07-1, Delegations of Signature Authority. The delegations of signature authority to execute less-than-fee simple real estate transactions from the Commission to the Director or designee was first adopted in September of 2007. Since 2007, Policy 25-07-1 has been revised or amended on six occasions with the most recent revision in occurring in 2017. The 2017 revisions included the following instructions from the Commission to staff within the Requested Action of the Item:

“Direct staff to consult with the Real Estate Committee to clarify Commission intent, refine language, simplify policy structure, and prepare amendments to Policies 55-06-1 and 55-17-1 and 25-07-1 for future Commission consideration as indicated.”

Staff’s current requested action follows up with the prior instructions from the Commission and has been reviewed by the Commission’s Real Estate Committee, the Assistant Attorney General’s office and Executive Management. If adopted, this action streamlines Commission real estate policy and delegated signature authority from a pre- 2001 level of more than 40 pages spread throughout 15 documents down to three documents averaging four pages each.

STAFF RECOMMENDATION: Adopt the revised and consolidated Commission policies 55-06-1, 55-17-1, 25-07-1 and associated terms and definitions as detailed in this Item.

LEGAL AUTHORITY: RCW 79A.05.030 (5) Powers and duties – Mandatory RCW 79A.05.070 (5) Further powers – Director of parks and recreation – Salaries RCW 79A.05.075 Delegation of commission’s powers and duties to director

SUPPORTING INFORMATION: Appendix 1: Proposed Revised Commission Policy 55-06-1 Appendix 2: Proposed Revised Commission Policy 55-17-1 Appendix 3: Proposed Revised Commission Policy 25-07-1 Appendix 4: Revised real estate policy terms & definitions

REQUESTED ACTION OF COMMISSION: That the Washington State Parks and Recreation Commission:

1. Adopt the revised Commission Policy 55-06-1 “Less Than Fee-Simple Real Estate Transactions and Non-recreational Uses of Parklands” as shown in Appendix 1. 2. Adopt the revised Commission Policy 55-17-1 “Fee-Simple Property Acquisition & Disposal” as shown in Appendix 2. 3. Adopt the revised Commission Policy 25-07-1 “Delegations of Authority for Real Estate Transactions & Service” as shown in Appendix 3. 4. Adopt the terms and definitions used in association with agency real estate policies as detailed in Appendix 4.

Author/Contact: Steve Hahn, Real Estate Program Manager [email protected] 360-902-8683

Reviewers:

Jessica Logan, SEPA: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800 (19). Christeen Leeper, Fiscal Impact Statement: There is no fiscal impact directly associated with approval of the policy revisions in this requested action. Michael Young, Assistant Attorney General: March 1, 2018 Assistant Director, Peter Herzog

Approved for Transmittal to Commission

______Don Hoch, Director

APPENDIX 1

PROPOSED 2018 revisions are shown in red and strikethrough

55-06-1 Less Than Fee-Simple Real Estate Transactions and Non-recreational Uses of Parklands

I. REAL PROPERTY AGREEMENTS

GENERAL PRINCIPLES

A. Park Values. The Commission is firmly opposed to the placement on parklands of any facility or structure (such as a building, utility pole or line, tower, etc.) improvement, or commercial facility that will have a significant adverse effect on public recreation or the natural environment. Protection of park values and the provision of public recreational needs are paramount to any other use.

B. Refusal Denial of Application. State Parks may, at its discretion, refuse to approve deny any proposed use or facility/structure or concession solely on the basis that the facility or service use or facility/structure detracts from the natural, cultural, or recreational values of the park, or causes adverse impacts that cannot be sufficiently mitigated. State Parks will deny a proposed use or facility/structure if it does not meet review criteria, unless State Parks determines a waiver of review criteria is appropriate.

C. Review Criteria. Use Agreements authorizing second parties to utilize State Parks property for non-recreational uses will include conditions as required for the protection of the park or properties natural, cultural, historic, or recreational values. Use Agreement terms and conditions must be binding on all signatories, must fulfill statutory requirements under RCW 79A.05.030 (5) and RCW 79A.05.070 (7), be approved as to form by the AAG and conform to the Land Authorization and Documentation System (LANDS) Manual. State Parks may grant uses and/or site facilities only when review criteria are met. State Parks will consider the following in reviewing any request to use park lands for non-recreational purposes and deciding whether to grant, condition or deny such a request: 1. The extent to which the requested use will impact the physical environment and recreational uses of the park lands on which the use will occur. 2. The extent to which any such impacts can be mitigated to the satisfaction of State Parks. Proposals that cannot be successfully mitigated will be denied. 3. The amount of revenue to be generated based on payment of compensation pursuant to the applicable fee schedule or other valuation method adopted by the Commission or otherwise provided by law. 4. Review Criteria for granting uses on non-traditional park lands takes into account the significantly different attributes and management conditions of rail-trails and other non-traditional lands. It is the policy of the Commission to recognize the significantly

different attributes and management conditions of rail-trails and other non-traditional lands, and to be more flexible in permitting non-parks uses; specifically:

a. The Commission continues to recognizes established “grandfathered” residential, agricultural, forestry, and other limited use access crossings of former railroad rights-of-way, and will not assess application or use fees against holders or requestors of “grandfathered” permits. “Grandfathered” crossings may be relinquished by the owner or terminated with the owner’s consent.

b. Existing leases of rail-trail lands will be honored for the duration of their terms. State Parks will consider renewals or new leases per RCW 79A.05.030.

c. Permits or easements for crossings of these rights-of-way corridors, binding on all signatories, must fulfill statutory requirements under RCW 79A.05.030 (5) and RCW 79A.05.070 (7) and be approved as to form by the AAG; and follow Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables.

d. The Commission recognizes and confirms the rights of adjoining landowners’ pre-existing agricultural and forestry operations on lands adjacent to rail-trails.

e. The Director or designee may permit access or other use parallel to or, in very limited circumstances on a case by case basis, on the recreational trail within the right-of-way rail-trail corridor of a rail-trail, for temporary agricultural, forest management, or other uses under such terms and conditions as deemed necessary to protect the public interests.

5. Agreements for non-recreational uses of parklands will include conditions as required for the protection of the park’s natural, cultural, historic, or recreational values. Use Agreement terms and conditions, binding on all signatories, must fulfill statutory requirements under RCW 79A.05.030 (5) and RCW 79A.05.070 (7) and be approved as to form by the AAG and follow Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables. “No permanent use may be conveyed that is not reciprocal or for the primary/sole benefit of the Commission.” (Adopted May 3, 2001.) 6. The Director or designee may utilize direct lease negotiations for those public-private partnership or facility development proposals that do not lend themselves to competitive bidding. 7. State Parks will consider proposals for mining, or for the sale of sand, gravel, rock, or other minerals from State Parks’ lands only when the requested use or activity conforms with this policy and the five review criteria detailed in the LANDS Manual, Volume One: Narrative and Data Tables and Volume Two: Procedures, Section RPA.

D. Valuation. The Commission sets application and processing fees and guides staff in deriving use fees per its periodically revised “Fee Schedule – Real Estate and Concession Services.”

1. State Parks Staff may use other agencies’ appraisals in deriving value of lands to be leased. In the event no independent appraisal is required, fair rental shall be determined through staff review, evaluation, and negotiation. 2. State Parks may consider and accept non-monetary compensation or benefits in lieu of or in addition to cash or monetary consideration when authorizing leases, permits, easements, or other agreements; Provided, the action is consistent with federal and state law and Commission policy. The in-kind services shall be documented and accepted in writing as being of equal or higher value than the negotiated monetary value for the use. 3. State Parks may, at its sole discretion, waive or reduce rents in lieu of other considerations when the proposed user is a public entity or a non-profit organization.

E Waiver. Each use or concession request is unique; therefore, on a case-by-case basis, State Parks may waive specific requirements, to require additional materials, or to deviate from generally accepted applicable review criteria. If doing so, the decision- makinger authority shall state the rationale for the waiver.

F. Leased Lands - Approval of all new leases and cancellation of existing leases wherein State Parks functions as the Grantee to the agreement, other than those that are routine as determined by staff and minor, will remain with the Commission.

II. COMMUNICATION FACILITIES

A. Telecommunications within State Parks. The Washington State Parks and Recreation Commission holds public recreational needs and State Parks values paramount in considering requests for any use of park lands. Requests for siting and use of communications facilities by television broadcasting stations and non-television telecommunications entities shall be considered only under the following conditions: 1. The proponent shall prove to State Parks’ satisfaction that the proposed site within the park is the only feasible location within the general area to be served by the proposed facilities. 2. The proposed facilities shall utilize existing buildings and towers whenever possible, or shall be designed, built, and maintained to State Parks standards and values.and made to serve public recreational needs. 3. Television station users shall be subject to the provisions of RCW 79A.05.080, 085.

4. Any new user which, by operation of its equipment, creates interference with any existing user’s operation shall remedy such interference solely at the expense of said new user. In the event such interference cannot be remedied, State Parks shall terminate the new use agreement. 5. All antenna installations, changes, or relocations shall require written approval by State Parks. 6. The proposed use directly or incidentally shall benefit State Parks purposes as well as public health, safety, and welfare.

B. Refusal of Application. State Parks may, at its discretion, deny use requests solely on the basis that the towers, antennae, supporting cables, or equipment associated with the proposed operation, considered singly or in combination with the facilities of others, are unsightly, detract from park aesthetics, or interfere with scenic vistas from park property.

C. Agreement. Use Agreement terms and conditions, binding on all signatories, must fulfill statutory requirements under RCW 79A.05.030 (5) and RCW 79A.05.070 (7); be approved as to form by the Office of the Attorney General; and follow Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables. Television station users shall be subject to the provisions of RCW 79A.05.080, 085.

III. UTILITIY PROVIDERS

Existing Default – Public Service Utility Providers. Beginning January 1, 2015, State Parks will not process any new request for non-recreational uses of park lands, or for the extension of an existing use agreement: 1. If the applicant, at the time of the request is found to be occupying any other State Parks property without an authorizing agreement for the use; or 2. If the applicant is in breach or default of the terms of any other use agreement (including State Parks acting as successor in interest to a former railroad company agreement), or any executed Master Agreement. Any breach of the terms of a single easement under a Master Agreement may be grounds for termination of that easement but shall not be considered a breach or default of, or grounds for termination, of the Master Agreement. Notwithstanding the foregoing, State Parks may elect to process a request for a new use agreement, or for the extension of an existing use agreement, if the applicant agrees to comply with the terms of any and all previous use agreements for which the applicant is in breach, and/or agrees to remedy an unauthorized use by obtaining authorization for the applicant’s use of park lands, when such agreement is made as part of a comprehensive settlement resolving all of the applicant’s breaches and/or unauthorized uses.

Existing Default - Private Utility Providers. State Parks will not process any new request for non-recreational uses of park lands, or for the extension of an existing use agreement, if the applicant is at the time of the request in breach of the terms of any other use agreement (including a lease or easement) between the applicant and State Parks (including State Parks acting as successor in interest to a former railroad company agreement). State Parks will not process any new request for non-recreational uses of park lands, or for the extension of an existing use agreement, if the applicant is at the time of the request is found to be occupying any other State Parks property without an authorizing agreement for the use. Notwithstanding the foregoing, State Parks may elect to process a request for a new use agreement, or for the extension of an existing use agreement, if the applicant agrees to comply with the terms of any and all previous use agreements for which the applicant is in breach, and/or agrees to remedy an unauthorized use by obtaining authorization for the applicant’s use of park lands, when such agreement is made as part of a comprehensive settlement resolving all of the applicant’s breaches and/or unauthorized uses.

IV. MOTORIZED TRAIL USE

GENERAL PRINCIPLES A. Park Values. The long-term preservation of publicly owned and managed long-distance trail corridors has many economic, social, environmental, and cultural benefits, and the protection of the integrity of these corridors is of paramount importance. State Parks also recognizes that working agricultural lands benefit the state and that long-distance trails may, in some cases, act as barriers to efficient commerce. Some flexibility in allowing limited use of these corridors by motor vehicles is in the public interest. This policy does not apply to trail crossings, perpetual easements, park and corridor maintenance activities, emergency response activities, park concessions, or short-term special events or activities. 1. Non-motorized recreation remains the principal use of State Parks long-distance trails, and the safety and pleasure of park visitors must not be significantly compromised by permitted motor vehicle use. 2. State Parks facilities, recreational values, and natural and cultural resources must not be significantly degraded by permitted motor vehicle use. State Parks may, at its sole discretion, deny non-recreational motorized use of a trail if impacts from such use cannot be sufficiently mitigated, as determined by State Parks. 3. Other than OPDMDs, motorized recreational use of state park long-distance trails is prohibited. 4. Non-recreational motorized use of a trail corridor will only be permitted in areas where there is no other practical alternative for access to an abutting property. A practical alternative is defined as another access route, existing or legally permissible, that is economically feasible and environmentally acceptable, as determined initially by State Parks, and finally by the appropriate permitting agencies. 5. Non-recreational motorized use of the trail tread will not be considered in areas of high recreational use as determined by State Parks using trail counts or direct observation of recreational trail use. When evaluating a permit renewal, State Parks will also consider whether recreational use has been displaced by the permitted non- recreational motorized use by evaluating use patterns on the impacted trail section in comparison to patterns on adjacent or similar sections of trail. If State Parks determines that recreational use would likely be high without the permitted non- recreational motorized use, the permit renewal will not be approved. 6. Wherever feasible, and where it will not cause significant resource degradation, non- recreational motorized use should be adjacent to, rather than on, the trail tread. 7. There should be no net cost to the state to permit, maintain, monitor, or manage permitted non-recreational motorized use of State Parks long-distance trails. Permit fees should cover necessary state costs. 8. State Parks will be the sole determiner of long-distance trail standards and condition requirements. The condition of permitted sections of trail must be maintained consistent with standards for comparable non-permitted sections of the trail. 9. Any damage to the trail corridor caused by permitted non-recreational motorized users will be repaired to State Parks satisfaction as soon as feasible; such damage must not be allowed to accumulate for repair at the end of a use season. Permittees

should consult with State Parks before undertaking any repairs. Unrepaired damage will be cause for permit revocation. 10. Any modification to State Parks property must be approved in writing prior to construction. 11. State Parks will abide by any deed restrictions or other requirements imposed by the RCO, other grant funding agencies, or by permitting agencies. No use that results in a conversion or that is in violation of a building or environmental permit will be permitted.

B. Other Requirements. Permits for non-recreational motorized use of State Parks long- distance trails will include conditions as required for the protection of the park’s natural, cultural, historic, and recreational values. Such conditions may include, but are not limited to: 1. The size and type of vehicles driven on the recreational trail tread must not prevent safe passing by pedestrians, bicyclists, skiers, or equestrians while remaining on the trail tread except under the following conditions: i. The permittee provides flaggers or temporary barricades at the next road crossings or trail access points on both ends of the trail section being used ii. The motorized use must not delay recreational use for more than 10 minutes in one occurrence, and for no more than 60 minutes in any day during daylight hours. iii. The vehicle track width, including its tires or tracks, must not exceed 90% of the width of the trail tread. 2. Vehicle weights will be limited on trail sections and bridges when warranted. 3. Vehicle width must not exceed the width of bridge railings or curbs. 4. Motorized use will not be permitted through tunnels. 5. The number of permitted vehicles using the same section of trail may be limited based on recreation use demands. 6. The speed limit for motorized use must not exceed 15 miles per hour, except within 200 feet of recreational trail users, where speed must not exceed 5 miles per hour. 7. Vehicle operators must yield to recreational trail users within 30 feet, and come to a complete stop to allow recreational users to pass. When encountering recreational trail users with horses or other pack animals, the vehicle operator must also turn off the vehicle until the animals have safely passed, unless the vehicle operates silently. 8. State Parks bollards, gates, or other barriers must be replaced and relocked after each use, and permittees will not duplicate keys or make keys or lock combinations available to parties other than their employees or agents. 9. Vehicle and equipment operators shall abide by all applicable licensing and safety regulations, and will not engage in any use of State Parks land that is in violation of any Federal, State, or local law. 10. Vehicle operators shall carry their permit, and display it when requested by State Parks staff. Permittees are responsible for ensuring any vehicle operators under their permit understand and abide by permit requirements. 11. In times or places where fire danger is elevated, State Parks may prohibit motor vehicles on the trails entirely or may require fire prevention and fighting measures.

This may include, but is not limited to, vehicle exhaust modification, or firefighting tools, extinguishers, and/or a pump unit. 12. State Parks may restrict non-recreational motorized use during special events or while it implements repairs or capital projects. 13. State Parks may restrict non-recreational motorized use in areas or times when priority, listed, or other sensitive species may be present in the trail corridor.

V. RECREATIONAL CONCESSION AREAS & ENTERPRISE LANDS

Recreational Concession Activities (RCAs) will be consistent with a park’s adopted land classifications and the corresponding Land Use and Land Classification Compatibility Matrix outlined in the agency’s land classification system. If a type of facility or activity is not specified in the matrix, a decision to permit, conditionally permit, or not permit a facility or activity should be based on the most similar or closely aligned facility or activity listed in the guidelines.

RCAs are generally limited to areas within parks classified as Recreation, Resource Recreation, and Heritage Areas. Constructed facilities will also be consistent with adopted management guidelines that set the appropriate intensity and types of facilities for each land classification. RCAs involving construction of facilities are not permitted in Natural Areas, Natural Forest Areas, or Natural Area Preserves.

APPENDIX 2

PROPOSED 2018 revisions are shown in red and strikethrough

55-17- 1 Fee-Simple Property Acquisition & Disposal

I. PROPERTY ACQUISITIONS Property acquisitions will be approved by the Commission unless otherwise authorized by policy through existing delegations to the Director or designee. Priority for designating properties for acquisition by the Commission will be established through State Parks’ Statewide Acquisition and Development Strategy originally adopted by the Commission in July of 2016, through Commission adopted Classification and Management Plans (CAMP), or other Commission guidance documents and actions.

II. PROPERTY DISPOSALS A. Surplus Park Lands. State Parks may dispose of parklands only as authorized by statute. Surplus park property may be sold only after unanimous Commission declaration in open session of a regularly scheduled or special meeting that the property to be sold is surplus to the needs of the state park system. Disposal of surplus park lands pursuant to RCW 79A.05.175 shall be guided by the following: 1. Staff will clearly separate the two processes of 1) designating a parcel of park lands surplus to the needs of State Parks and 2) conducting subsequent property improvements, entitlements, and sale activities with respect to such park lands. 2. Staff will seek to maximize the return to the State Parks system from the sale of any park lands declared surplus by the Commission, unless otherwise specifically directed by the Commission. Staff may determine that property improvements or entitlements are warranted prior to the sale of surplus property. The Commission acknowledges that prudent investments through reasonable property improvements of surplus property will return a net, positive economic value on the date of sale. Investments of this type are in the best interest of the State Parks. 3. Prior to recommending disposal of surplus property to the Commission, staff will consider off-setting benefits or payments from third parties, in support of Commission goals to protect open space and natural areas. Surplus park lands shall be transferred in a natural condition, consistent with existing Commission policies and values (environmental, cultural, historic, and recreational) when such transfers are economically feasible or environmentally warranted.

4. The Commission may designate selected surplus lands as Enterprise Lands. Rather than being sold, Enterprise Lands will be offered for lease to public or private parties for the purpose of generating revenue for the Sstate Pparks system. a. State Parks will not acquire new lands solely for the purpose of leasing them as Enterprise Lands, but it may purchase lands that are not suited to park purposes as part of a larger transaction that secures high-quality park properties. In these instances, State Parks may retain the unsuited lands for an Enterprise Lands designation. b. If State Parks is unsuccessful in executing Enterprise Lands leases with qualified parties after suitable periods of time and reasonable efforts have been made to advertise the opportunities, the subject lands may be sold or otherwise disposed of without further Commission action as provided by statute (RCW 79A.05.175).

B. Property Transfers. State Parks may transfer lands without financial compensation to another government jurisdiction when the Commission unanimously finds that the lands are surplus to the needs of the state for development for state park purposes (RCW 79A.05.170). State Parks may sell or exchange lands when the Commission unanimously finds that lands cannot advantageously be used for park purposes (RCW 79A.05.175). Consistent with these statutes, State Parks will actively and strategically manage its real estate holdings to improve and enhance the quality and extent of State Parks’ recreation and conservation opportunities to best meet the needs of this and future generations of Washington residents and visitors. 1. State Parks will, under specific circumstances, consider transfer, sale, and exchange of agency-owned property to other government jurisdictions, including Native American tribal governments, as an appropriate mechanism through which to redirect resources and, in part, achieve its strategic land management goals. 2. State Parks will consider originating transfer of all or part of state parks or state park properties to other government jurisdictions only when the Commission unanimously finds a park or property is surplus to its needs consistent with RCW 79A.05.170. The Commission may make such a finding when: a. A catastrophic natural disaster or event has either closed or significantly impacted the use of the park or property for state park purposes; or b. Legal or physical access to the park or property has been lost (e.g., court action, title claim, or condemnation proceeding), or when c. All or part of a park or property does not sufficiently advance the Commission’s strategic goals or direction as expressed in its adopted strategic planning documents or other actions.

3. State Parks will consider originating transfer of all or part of a state park or state park property to other government jurisdictions when necessary to address insufficient agency financial resources to continue operation of the site or as directed by the Legislature. The Commission will consider and approve such transfers only as provided in RCW 79A.05.170 and RCW 79A.05.175. 4. State Parks will consider requests from other government jurisdictions for transfer or sale of all or part of a state park or state park property to other government

jurisdictions when the Commission unanimously finds that a park or property is surplus to its needs consistent with RCW 79A.05.170 or RCW 79A.05.175. The Commission may make such a finding when: a. All or part of a state park or state park property is considered an inholding in another government entity’s real estate ownership or other formally established property acquisition boundary (e.g., Tribal reservation, wilderness area, state wildlife area, state natural resource conservation area, local community forest or park); or when b. It can be demonstrated that transferring ownership of all or part of a park or park property to another government jurisdiction will better achieve the property’s originally intended purpose or otherwise better advance the Commission’s recreation or conservation mission.

5. State Parks will only consider originating or evaluating requests for exchange of all or part of a parks or park properties property when the Commission finds that a park or park property is surplus to its needs consistent with RCW 79A.05.175. The Commission will make such a finding only when an exchange transaction will result in a significant net benefit to the State Parks’ statewide recreation or conservation mission.

6. When considering any transfer or exchange of state parks or state park properties to other government jurisdictions, State Parks should evaluate the efficacy of the proposed transaction(s) using adopted criteria to analyze the degree to which a potential real estate transaction: a. Demonstrates the benefits from protection of natural and cultural resources b. Advances the business interests of the agency State Parks c. Enhances the recreation, cultural, and interpretive opportunities that people want d. Promotes meaningful opportunities for volunteers, friends, and donors e. Forms strategic partnerships with other agencies, tribes, and non-profits f. Expands use of land-holdings for compatible revenue generating purposes g. Develops amenities or acquires lands that advance transformation

III. PROPERTY EXCHANGES. Property exchanges will be authorized by the Commission and comply with RCW 79A.05.175 and 79A.05.180.

IV. PARKLAND ACQUISITION ACCOUNT A. The Parkland Acquisition Account is a vital tool in repositioning State Parks’ non- renewable real property assets.

B. The PAA shall fund only eligible costs related to acquisition of perpetual interests in real property as detailed in the LANDS Manual, Vol. Two: Procedures, Section I.C. Real Property Acquisition.

C. Costs peripheral to purchase of real property shall be ineligible.

D. The Director or designee may spend PAA funds to purchase fee-simple interests in properties when the fee-simple purchase is time-sensitive, and/or where acquisition is effectively prohibited using traditional fund sources, Provided: 1. The fee-simple purchase price is under $15,000 (2001dollars as adjusted for inflation) 2. The parcel is non-complex (e.g., single owner, minor improvements, liens, etc.) and 3. The parcel adjoins existing parklands

E. The Director or designee may spend PAA funds to purchase less-than-fee ownership rights, preferably in perpetuity, but in no case for less than 30-year terms, when 1. The non-fee-simple interest is deemed “highest value” 2. The purchase price is under $15,000 (2001dollars as adjusted for inflation)

F. State Parks will not commit to providing grantors of less-than-fee property rights either annual or periodic payments. Payments from the PAA will be one-time only.

G. Subject to spending authority, the PAA shall be funded by: 1. Net proceeds from the S sale of less-than-fee interests or rights (partial interest sales) from traditional parklands when supported by Planning staff and as authorized in writing by the Director or designee,; Provided that partial sales from traditional parklands not impact present or future recreational development or use of the property. 2. All proceeds derived from sales of surplus park property, per RCW 79A.05.175 3. All proceeds derived from direct sales to resolve trespass, per RCW 79A.05.178.

APPENDIX 3 PROPOSED 2018 revisions are shown in red and strikethrough

25-07-1 Delegations of Authority for Real Estate Transactions & Service (As revised May 18, 2017 by Agenda Item E-1)

Provided that the Director or authorized designee’s reserve the right to defer or abrogate any delegated authority upwards and further; Provided that all actions serve the public good by enhancing the State’s natural, cultural, or recreational resources, the Commission grants a consolidated Authority that allows the Director or designee to:

A. Grant real property agreements (leases, easements, and permits) or execute transfers of fee interest or development right as provided for by law on any State Parks’ property which that the Commission has unanimously designated as surplus parklands (as defined in Commission Policy 55-06-1 or in RCW 79A.05.175); Provided all public notice and public hearing statutes, policies and procedures are met.

B. Transfer fee interests, through sale at public auction or as provided for in RCW 79A.05.170, in any State Parks’ property which the Commission has unanimously designated as surplus parklands (as defined in Commission Policy 55-06-1 or in RCW 79A.05.175); Provided: 1. All public notice and public hearing statutes, policies, and procedures are met. 2. No transfer of fee interest shall be executed under those authorities granted in RCW 79A.05.178. 3. The minimum bid of all lands sold at public auction shall first be determined through appraisal to the satisfaction of the Commission. 4. No exchange of lands shall be authorized under this authority. 5. Lands authorized for sale through public auction under this delegation shall first be offered to the county, local governments, and Tribal Nation in which the lands are situated pursuant to RCW 43.17.400. If more than one other form of government offers to purchase surplus lands as described therein, the Director or designee shall offer the sale to the highest and best bid received.

C. Accept or grant non-fee simple agreements, permanent or temporary, necessary for the implementation of State Parks’ projects, to continue current management activities, or

partnerships, or to complete fee-simple real property purchases approved or budgeted by the Commission, or directed/funded by the Washington legislature or Governor’s Office.

All other agreements for the installation, operation, and maintenance of utilities and facilities; for the use of park roads by second parties; and for other uses of parklands and facilities, shall be subject to the following conditions and limitations:

1. That no permanent property right is conveyed unless the conveyance meets the criteria of subparagraph C (4) below. 2. That permits will: a) Be granted for terms not to exceed five years or 60 total months. b) Meet the general criteria for a use permit as detailed in the LANDS Manual. c) Only authorize improvements or facilities that are movable and temporary in nature.

3. That leases for periods not to exceed twenty (20) years will be granted only when the lease is for a concession or a Recreational Concession Area and the permitted use does not set a major policy precedent or have a high potential to elicit public controversy, does not authorize operation of entire parks or major facilities within a developed park (e.g., campgrounds and environmental learning centers). Alternately, the lease is for a park concession as defined in Commission policy 55-06-1, Section I and/or at least two of the following conditions must be met exist and lessee's permitted use will not adversely affect natural, cultural, or historic park resources: (Temporary impacts due to construction are acceptable if mitigated, and if the property is returned to a condition as good or better than before the activity.) a) Lessee’s permitted use is not considered a commercial venture. b) Lessee's permitted use will provide for increased recreational opportunity or for improved habitat/natural conditions. c) Lessee's permitted use does not require new construction, is located within, or adjoins, existing facilities, and the lease area is less than ten acres. d) Lessee is another government agency or sub-division thereof and the lease does not include any facility or combination of facilities larger than 5,000 square feet e) The lease area is located within a rail-trail right-of-way corridor. f) The lease is on undeveloped land and the permitted use supports grazing or agricultural purposes. g) The lease may be terminated for any higher park purpose by the Commission following formal notice of one year or less to the Lessee.

4. That easements for any period will be granted when the conveyance is the conversion of a “grandfathered” crossing permit as defined in Commission Policy 55-06-1 to an easement or when at least two of the following conditions exist and the permitted use will not adversely affect natural, cultural, or historic park resources: (Temporary impacts due to construction are acceptable if mitigated, and if the property is returned to a condition as good or better than before the activity.) a) The easement is underground or provides access for residential uses. b) The easement area is less than 1,000 linear feet or less than two acres in total area. c) Lessee is another government agency or sub-division thereof.

d) The easement is located within a rail-trail right-of-way corridor.

5. That the applicable environmental declaration indicates that the action is minor and that the adverse effects are not significant can be readily mitigated or are categorically exempt from SEPA.

6. That the real property agreement, binding on all signatories, fulfills statutory requirements under RCW 79A.05.030 (5) and RCW 79A.05.070 (7); is approved as to form by the AAG; and follows Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables, Section III and Volume Two: Procedures, Section RPA.

D. Renew, replace, assign, or amend existing lease, easement, permit, and other agreements with current State Parks’ documents; Provided: 1. All costs associated with the renewal, replacement, assignment, or amendment is borne by the proponent; 2. The assignment or amendment is offered to cure a minor error or omission in the original document; 3. The amendment will not materially change the original permitted use unless such a change is necessary for public health and safety; 4. The new agreement meets the general conditions described in Section C (3) and (4) and (6) of this delegation. (e.g., 20-yr. lease;, conforming language, etc.); or 5. The agreement is appurtenant to non-traditional parklands (as defined in Commission Policy 55-06-1).

E. Accept services in lieu of or in addition to cash or monetary considerations for grants involving leases, permits, or easements; provided: 1. The in-kind services are documented and accepted in writing as being of equal or higher value than the negotiated monetary value for the use. 2. Acceptance is consistent with state law, specifically public works and prevailing wage statutes or; 3. The proponent is a public entity or a non-profit organization.

F. Accept or grant Restrictive Covenants or Declaration of Covenants and accept encumbrances, perpetual restrictions, conservation easements or deed reservations involving property for the purpose of protecting or improving recreational, natural, historical, or cultural resources, public health, safety and welfare, consistent with health requirements and/or authorities with jurisdiction. ;the binding on all signatories, fulfills statutory requirements under RCW 79A.05.030(5) and RCW 79A.05.070(7); is approved as to form by the AAG; and follows Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables, Section III and Volume Two: Procedures, Section RPA.

G. Accept or grant agreements (e.g., Memoranda of Agreement or Understanding, Interlocal Agreements) with tribal and other forms of governments, non-profits, or friends groups and accept encumbrances, perpetual restrictions, conservation easements, or deed

reservations involving property for the purpose of protecting or improving recreational, natural, or cultural resources or public health, safety, and welfare.: Provided that , the agreement, binding on all signatories, fulfills statutory requirements under RCW 79A.05.030(5) and RCW 79A.05.070(7); is approved as to form by the AAG; and follows Commission policy and objectives as detailed in the LANDS Manual, Volume One: Narrative and Data Tables, Section III and Volume Two: Procedures, Section RPA. PROVIDED any term agreement:

 Is limited to a term of 5 years  Is consistent with applicable statute, and with Commission rules, policies, adopted strategic planning documents and other Commission actions  Is consistent with park-specific Commission guidance (e.g., park master plan, land classifications, and long-term boundary)  Does not authorize operation of entire parks or major facilities within a park (e.g., campgrounds and environmental learning centers)  Does not set a major policy precedent or have a high potential to elicit public controversy.

H. Spend Parkland Acquisition Account (PAA) funds to execute agreements and purchase fee-simple ownership in properties or property rights (i.e., uplands, tidelands and shorelands; improvements and structures) when the fee-simple purchase is time-sensitive, and/or where acquisition is effectively prohibited using traditional fund sources; Provided:  The fee-simple purchase price is under $12500,000  The parcel is non-complex (e.g., single owner, minor improvements, no liens, etc.), and  The parcel is adjacent to or adjoins existing parklands; or  The parcel meets the criteria described in Section (K) below.

I. Spend PAA funds to obtain non-fee-simple ownership easements and rights, preferably in perpetuity, but under no condition for less than 30-year terms, when the non-fee-simple interest is deemed “highest value9” when considered in the context of adopted park objectives, and the purchase price is under $12500,000. J. Accept donations of real property or partial interests in real property; Provided, the donation parcel is adjacent to existing park property. Acceptance may be completed only after a formal acceptance letter is offered to the donor by the Director, stating that the land or partial interest of the lands involved is beneficial to the state park system.

K. Acquire real property; provided, that the property is acquired from willing seller(s), is less than 10 total acres, or that the purchase price is under $6500,000 (200187 dollars, as adjusted for inflation); and funding is available through either the PAA or a grant source. Additionally, the property to be acquired shall be:

1 Highest Value -- the consideration given to a property based on criteria including: future availability, value in use to the park, conversion risk and any other park-specific conditions that contribute to overall WSPRC objectives. Example of a “park-specific condition that contributes to an overall park objective”: Purchasing easement interests to provide water/utility services from an existing provider when the alternative is acquisition of non-recreational lands with water availability.

 Located entirely within a Commission-approved, long-term (CAMP) boundary or other agency adopted master plan or development plan,  Needed to complete an agency adopted capital project, or  Needed to complete an agency adopted partnership project

L. Act on any Commission decision relating to real property and adopted in open session, for a period of ten (10) years from the date of the adopted item in accordance with the action and in an effort to complete the property transaction; Provided, that the action is essentially the same as and materially consistent with the original Commission decision. For transactions completed beyond 24 months from the date of the original decision, staff will provide a written report to the Commission on the property transaction.

M. Make necessary adjustments in the legal description and deed of a subject parcel as deemed to be in the best interest of the State, and take other minor or administrative actions as necessary to complete real estate transactions approved by the Commission, including but not limited to correcting scrivener’s errors, making amendments to park boundaries following disposal of parkland, and revising or amending agreements when the revision or amendment constitutes less than a 20 percent change in the original agreement or scope of work (e.g., adding a water line to a sewer line in the same trench.)

N. Biennially Upon request, but at least annually, provide the Commission a listing summary of property transfers, leases, easements, permits, covenants and other agreements granted and accepted under this authority.

O. Grant or amend Permits, Leases, and Concessions as provided for in this Policy in any building, facility, or park area operated and maintained by an authorized second party wherein the second party or concessionaire has been licensed to sell alcoholic beverages by the Washington state liquor control and cannabis board and in general conformance with Washington Administrative Code 352-32-210.

APPENDIX 4

DEFINITIONS

Non-traditional park lands– any State Parks’ property that: 1. Is in whole or substantial part a former railroad right-of-way corridor (commonly referred to as a rail-trail), or 2. Shows evidence of previous or current industrial or commercial use and is appropriate for recreational concession activities or non-recreational functions, or 3. Has been designated as “non-traditional” parkland by the Commission.

Traditional park lands– all other properties of the State Parks system

Grandfathered Access – a historical road over State Parks lands used for agriculture (seasonal ingress/egress), forestry access, a single private residence, or other limited access to non-state park privately/publicly held lands.

Road Crossing - either a county road crossing or private drive that can feasibly be improved or additionally developed to access property. Utilities of any form located on, over, under, or within park lands are not considered Road Crossings.

Unreasonable hardship – where the next best alternate access route or crossing is proven to the satisfaction of the Director to be either economically infeasible or environmentally unacceptable.

Surplus park lands– those lands that the Commission has formally designated as lands under its control that cannot advantageously be used for State Parks purposes and are not consistent with, or do not contribute significantly towards, fulfilling the agency mission.

Major facilities – include but are not limited to sewage treatment facilities, central utility plants, major structures, transmission lines, new transmission towers, public and private telecommunications, commercial cables or conduits, commercial buildings, pipelines, etc.

Concession – any contractual agreement (e.g., lease, franchise, permit, etc.) granted by State Parks for the purpose of providing accommodations, other facilities, and/or services on parkland for public recreational, artistic, or educational use and enjoyment.

Concessionaire – the contractor, franchisee, or permittee who provides public accommodations, other facilities, and/or services on parkland pursuant to as a concession agreement.

Economic benefit – Includes cost avoidance, land or material exchange, and revenue earned to the park system as a result of an agreement.

Public Service Utility – means any of the following: 1. Municipal electric utility formed under Title 35 RCW; 2. Public utility district formed under Title 54 RCW; 3. Irrigation district formed under chapter 87.03 RCW; 4. Cooperative formed under chapter 23.86 RCW; 5. Mutual corporation or association formed under chapter 24.06 RCW; 6. Port district formed under Title 53 RCW or water-sewer district formed under Title 57 RCW, that is engaged in the business of distributing electricity, water, or wastewater to one or more retail customers in the state; 7. Joint operating agency formed under RCW 43.52 or non-profit mutual corporation formed under RCW 24.06 comprising and selling electricity or telecommunications to one or more of the above public service utilities; and 8. Investor-owned utility owned by investors that meets the definition of “Public Service Company” in RCW 80.04.010 and that is engaged in distributing electricity to more than one retail electric customers in the state.

Fair Market Value (FMV) – means the amount of money that a purchaser willing, but not obligated, to buy the property would pay an owner willing, but not obligated, to sell it, taking into consideration all uses to which the property is adapted and might in reason be applied. Such uses must be consistent with applicable federal, state, and local laws and regulations affecting the property as of the date of valuation.

Recreational Concession Activity/Area (RCAs) – are activities or developments located on Commission-designated sites within State Parks or State Park Properties that provide opportunities for privately financed development of recreation facilities that meet the needs of park visitors and generate revenue to support State Parks. RCAs are intended as opportunities for the private sector to finance, construct, and operate recreation facilities in appropriate areas in state parks.

Enterprise Lands – are Commission-designated surplus properties that are available for lease to other public or private parties for the primary purpose of generating revenue for State Parks.

Public Telecommunications – television broadcasting stations as authorized under RCW 79A.05.080 and RCW 79A.05.085, non-television telecommunications facilities operated by public agencies and governmental organizations, and non-television telecommunication facilities operated by public and investor-owned utilities.

Private Telecommunications – non-television telecommunications facilities operated by private businesses other than investor-owned utilities, including but not limited to AM and FM radio broadcasters, community repeaters and paging services, and cellular telephone services, together with non-television telecommunication facilities operated by non-profit amateur radio organizations.

Conversion – where land was acquired or improved with grant funding from the Recreation and Conservation Office (RCO), a conversion occurs when use or function of recreation or habitat land or facilities changes to uses or functions other than those for which assistance originally was approved. Conversions must be offset by replacement with land and facilities of equivalent size, function, and value.

Corridor Maintenance Activity – repair, replacement, or maintenance of fences, hedges, walls, or other structures by adjacent landowners

Equestrian – a person riding a horse. For the purposes of this policy, as it relates to motor vehicle width restrictions, equestrian does not include wagon riders.

Flagger – a person who provides temporary traffic control.

Long-distance trails – stand-alone trails or trails within linear parks, usually located on former railroad rights-of-way rail-trail corridors. State Parks long-distance trails include John Wayne Pioneer Trail, Willapa Hills Trail, Columbia Plateau Trail, Klickitat Trail, and Spokane River Centennial Trail. This policy does not apply to long-distance trails that only pass through State Parks property for a small portion of their extent, such as the Olympic Discovery Trail, the Pacific Northwest Trail, or the Discovery Trail.

Motorized recreational use – motorized use for the purpose of enjoyment, often using all- terrain vehicles, off-highway vehicles, or motorcycles.

Motor vehicle – a terrestrial vehicle that is self-propelled using a motor or engine but not operated upon rails. “Motor vehicle” does not include an electric-assisted bicycle as defined in RCW 46.04.169.

Non-recreational motorized use – motorized use of a State Parks long-distance trail for the purpose of access to an adjacent landowner’s property.

Other Power-Driven Mobility Device (OPDMD) – power-driven devices other than wheelchairs used for locomotion by individuals with mobility disabilities. They are devices powered by batteries, fuel, or other engines, and may or may not be designed primarily for use by individuals with mobility disabilities. OPDMDs include golf carts, electronic personal assistance mobility devices, such as the Segway® PT, or any other mobility device designed to operate in areas without defined pedestrian routes.

Significant degradation – unmitigated loss or diminishment of sensitive public resources.

Trail corridor – an area that includes the trail tread and the area to the sides of it, including all adjacent property owned or managed by State Parks that is dedicated to the trail and its supporting uses. The typical width of a State Parks trail corridor is 50 feet on center, or 100 feet total, but corridor widths can be narrower or wider.

Trail tread – the portion of the trail on which people travel.

Parkland Acquisition Account (PAA) – created by the legislature to receive funds from sales of surplus parkland, and from which to purchase or acquire property for use as state park property (RCW 79A.05.170)

Eligible costs – purchase price/fee-simple price; administrative; incidental

Ineligible costs – overhead, including agency and attorney general staff time, court costs; road and facility development on replacement lands.

Highest value – the consideration given to a property based on criteria including: future availability, value in use to the park, conversion risk and any other park-specific conditions that contribute to overall WSPRC objectives. Example of a “park-specific condition that contributes to an overall park objective”: purchasing easement interests to provide water/utility services from an existing provider when the alternative is acquisition of non-recreational lands with water availability.

Item E-5: Iron Horse State Park Trail – Renaming Effort/Trail Update – Report

EXECUTIVE SUMMARY: This item reports to the Washington State Parks and Recreation Commission the current status of the process to rename the Iron Horse State Park Trail (which includes the John Wayne Pioneer Trail) and a verbal update on recent trail management activities. This item advances the Commission’s strategic goal: “Provide recreation, cultural, and interpretive opportunities people will want.”

SIGNIFICANT BACKGROUND INFORMATION: Initial acquisition of Iron Horse State Park Trail by the State of Washington occurred in 1981. While supported by many, the sale of the former rail line was controversial for adjacent property owners, some of whom felt that the

rail line should have reverted back to adjacent land owners. This concern, first expressed at initial purchase of the trail, continues to influence trail operation today.

The trail is located south of, and runs roughly parallel to I-90 (see Appendix 1). The 285-mile linear property extends from North Bend, at its western terminus, to the Town of Tekoa, on the Washington-Idaho border to the east. The property consists of former railroad corridor, the width of which varies between 100 feet and 300 feet. The trail tread itself is typically 8 to 12 feet wide and has been developed on the rail bed, trestles, and tunnels of the old Chicago Milwaukee & St. Paul Rail Road. While State Parks ownership is not continuous across the entire 285-mile railroad corridor it does include 110 miles of continuous ownership from North Bend to the Columbia River near Vantage, and 105 miles of continuous ownership (with short private property gaps) from Lind to the Idaho border.

Most Recent Commission Action on the Trail The most recent Commission action of the trail occurred in 2016 when land classifications and a long-term boundary were adopted for portions of the trail section east of the Columbia River. As part of this July 21, 2016 agenda item the Commission:  Adopted a Resolution reaffirming support for an east-west cross-state trail;  Directed staff to work with the Washington Department of Natural Resources (DNR) to develop a transition plan for the DNR-managed trail corridor between the Columbia River at Beverly Bridge;  Directed staff to work with Iron Horse State Park Trail stakeholders to recommend a new name that considers establishing a broadly recognizable and marketable identity for the trail.

This Report discusses the trail naming component of the Commissions’ 2016 action.

Initial Trail Naming The park was initially named at the March 15, 1985 Commission meeting where the railroad corridor (which is a linear park) was named “Iron Horse State Park” and the trail tread itself within the railroad corridor was named the “John Wayne Pioneer Trail.”

As part of the 1985 Commission naming action two public meetings were held to solicit suggestions and comments. Park staff brought forward 5 names based on existing policy and public input. The 5 names considered as part of the 1985 naming effort were:

 John Wayne Pioneer Trail  Milwaukee Road Trail  Iron Horse Recreational Trail  Great-Walk-of-Washington  Upper Yakima River Trail

Since initial naming, staff has found the current name to be confusing for trail users. West of the Columbia River the trail has come to be referred to as the Iron Horse trail and east of the Columbia River it’s called the John Wayne Pioneer trail giving the impression that they are 2 different trails rather the Washington’s legislatively established cross-state trail. In past trail

planning processes trail users have also expressed concern that John Wayne had no actual connection to eastern Washington. Other comments have expressed a desire to use a name that focuses more on the history or geographic features associated with the trail and railroad.

Supporters of the John Wayne name suggest that the name itself was instrumental in the trail coming into existence. In particular, the John Wayne Pioneer Wagons and Riders, a group that was involved in initial establishment of the trail and conducts a yearly long distance trail ride, have supported the John Wayne name in the past but have indicated they are open to exploring other names.

Policy Framework for Park Naming Park and trail naming is guided by Commission Policy 72-14-1 Naming of Parks, Structures, and Features within State Park Areas and Procedure 72-1 Park Codes, Names and Categories (see Appendix 3 and 4). State Park staff will review potential new names for consistency with this policy and procedure.

Past Public Outreach on Trail Naming Public planning processes involving trail naming occurred when State Parks first began to manage the trail. In particular, two public meetings were held during the original 1985 trail naming process:  October 18, 1984 (original trail naming public meeting)  January 7, 1985 (original trail naming public meeting)

In 2016 Washington State Parks worked with an advisory committee and the broader public to create a management plan for the trail section extending from the Columbia River east to Malden. Four public meetings were held as part of this process – 3 in eastern Washington and 1 in Western Washington.  March 7, 2016 in Cheney  March 8, 2016 in Ellensburg  May 10, 2016 in Preston  May 11, 2016 in Ritzville

Approximately 300 people attended these meetings. During this public process State Parks requested feedback on trail naming. From these meetings staff received 90 comments related to naming which included 25 discrete name suggestions. These names and comments have been reviewed by staff as part of the trail renaming effort.

Next Steps As stipulated in the naming procedure, State Parks staff, including the Partnership and Planning Manager and the Interpretive Program Manager, will assemble a list of names for Commission consideration. Staff anticipates initiating a public review and comment process in the spring that includes the following components:  A web page dedicated to the trail renaming process, with the opportunity for the public to comment online;  Targeted outreach to stakeholder organizations;

 Notification of the renaming process sent to the Iron Horse State Park Trail email/mailing list (1000 contacts);  Outreach via social media including: o Posting on the agency Facebook page (80,000+ followers) o Posting on the agency Twitter account (25,000+ followers)

Following the conclusion of the public comment period staff anticipates bringing this item to the Commission as a requested action in May 2018.

SUPPORTING INFORMATION Appendix 1: Map of Iron Horse State Park Trail Appendix 2: Minutes from 1985 Trail Naming Requested Action Appendix 3: Commission Policy 72-14-1 Naming of Parks, Structures, and Features within State Park Areas Appendix 4: Procedure 72-1 Park Codes, Names and Categories (see Section 3. Park Naming)

Author(s)/Contact: Randy Kline, Statewide Trail Coordinator Email: [email protected] (360) 902-8632

Reviewer(s): Jessica Logan, SEPA REVIEW: Pursuant to WAC197-11-704 and WAC 352-11-055(2)(c), staff has determined that this Commission agenda item is a report and therefore is not subject to State Environmental Policy Act (SEPA) review. Christeen Leeper, Fiscal Impact Statement: Report only, no impact at this time. Michael Young, Assistant Attorney General: February 28, 2018 Peter Herzog, Assistant Director:

Approved for Transmittal to Commission

______Donald Hoch, Director

APPENDIX 1

Iron Horse State Park Trail Columbia River to Idaho Border Section

APPENDIX 2

Meeting Minutes from 1985 Trail Naming Requested Action

APPENDIX 3

Commission Policy 72-14-1 Naming of Parks, Structures, and Features within State Park Areas

72-14-1 NAMING OF PARKS, STRUCTURES, AND FEATURES WITHIN STATE PARK AREAS

Commission Policy 72-14-1 supersedes POL 72-78-1 Naming of Parks, POL 72-06-1 Naming Features within State Parks, and POL 72-65-1 Naming of Structures

See Also: RCW 79A.05.030 Powers and duties WAC 352-16-010 Naming and classification of state park areas Cultural Resource Policy 12-98-1 Donor Recognition Policy 37-06-1

1. Policy

The authority to provide an official name for a state park and state park areas within a park rests with the Commission (WAC 352-16-010). In naming of state park sites, Commission priority shall be given to geographic locations, cultural significance or geologic features. State park sites may be named for a living person or family if the site has been donated by the individual or family. Where it is desirable to give recognition to a living person or family for their contribution to the state park system, it is permissible to name for them individual or human-made features within a park. State Parks may not be named for a corporation or commercial entity.

For the purpose of naming constructed features (roads, trails, buildings, etc.), landscapes, or natural features, the Commission delegates this authority to the agency Director; provided that the Commission retains the authority to name anything for a business, a family name, or a person living or deceased. In exercising the delegated authority, the Director should give preference to geographic locations, culturally significant events and places, or geologic features. The Director may also consider names using botanical or biological references. All naming shall be consistent with Cultural Resources Policy (12-98-1) and the Donor Recognition Policy (37-06-1).

2. Definitions When creating or changing a name of a state park area, the following categories will be used in public information and applied in the calculation of the number of distinct sites in the state park system:

State Park: A state park area, generally greater than 10 acres in size, managed to protect and conserve significant scenic, natural and cultural features and to provide public access, facilities,

or programs that through recreational, educational, and interpretive experiences connect visitors with those features.

Historical State Park: A state park area meeting the definition of a state park, and possessing historical and/or cultural features that are its primary public attractions or purpose. The significance of the historic properties within a Historical State Park is of statewide or national significance.

Marine State Park: An island state park area, meeting the definition of a state park, typically accessible only by a boat or aircraft, with opportunities for recreational access and activities.

State Park Trail: A linear state park area, distinct from other units of the state park system, and designated primarily for non-motorized recreational trail activities (e.g., hiking, cycling, horseback riding, etc.).

State Park Heritage Site: A state park site, possessing structures or assemblage of features, with significant natural, cultural, historical or scenic attributes that are preserved and interpreted for the education and enjoyment of the public. State Park Heritage Sites can be stand-alone properties or designated sites within a State Park. Often, these sites are less than 10 acres in size.

State Park Conservation Area: A state park site defined by statute as a conservation area. A State Park Conservation Area may contain an assemblage of differently categorized state park areas.

State Park Property: A state park area which is held for future development or is otherwise inconsistent in form, features or developments from any of the named state park areas listed above.

Commission action date: March 27, 2014

Agenda item: E-2 Park Naming Policy – Requested Action

Approved for publishing date: ______

______

Director

APPENDIX 2 PROPOSED COMPREHENSIVE LIST OF STATE PARKS NAMES BY CATEGORY

STATE PARKS 89 Parks 90,35 Acres 4 65.3 of total land holdings %

Proposed Park Name (gray = no change Current Park Name Acres recommended) Alta Lake State Park 174.5 Alta Lake State Park Anderson Lake State Park 496.4 Anderson Lake State Park Battle Ground Lake State Park 275.3 Battle Ground Lake State Park Bay View State Park 66.3 Bay View State Park Beacon Rock State Park 4456 Beacon Rock State Park Belfair State Park 93.7 Belfair State Park Birch Bay State Park 664.1 Birch Bay State Park Bogachiel State Park 124.9 Bogachiel State Park Bottle Beach State Park 63.7 Bottle Beach State Park Bridgeport State Park 622.7 Bridgeport State Park Bridle Trails State Park 489.2 Bridle Trails State Park Brooks Memorial State Park 681 Brooks Memorial State Park Camano Island State Park 241.5 Camano Island State Park Cape Disappointment State 1754 Cape Disappointment State Park Park Conconully State Park 97.2 Conconully State Park Curlew Lake State Park 87.4 Curlew Lake State Park Daroga State Park 127.1 Daroga State Park Dash Point State Park 458.9 Dash Point State Park Doug's Beach State Park 378.7 Doug's Beach State Park Deception Pass State Park 3941 Deception Pass State Park Dosewallips State Park 734.4 Dosewallips State Park Federation Forest State Park 574.1 Federation Forest State Park Fields Spring State Park 832.2 Fields Spring State Park

Fort Ebey State Park 644.1 Fort Ebey State Park Flaming Geyser State Park 503.6 Flaming Geyser State Park Ginkgo Petrified Forest State 6723 Park Ginkgo Petrified Forest State Park Wanapum Recreation Area 454 Grayland Beach State Park 537.9 Grayland Beach State Park Griffith-Priday State Park 493.2 Griffith-Priday State Park Ike Kinswa State Park 452.5 Ike Kinswa State Park Illahee State Park 81.9 Illahee State Park Jarrell Cove State Park 56.2 Jarrell Cove State Park Joemma Beach State Park 105.8 Joemma Beach State Park Kanaskat-Palmer State Park 534.7 Kanaskat-Palmer State Park Kitsap Memorial State Park 63.1 Kitsap Memorial State Park Kopachuck State Park 279.9 Kopachuck State Park Lake Chelan State Park 147.2 Lake Chelan State Park Lake Easton State Park 697 Lake Easton State Park Lake Sammamish State Park 532 Lake Sammamish State Park Lake Sylvia State Park 251.5 Lake Sylvia State Park Lake Wenatchee State Park 490.4 Lake Wenatchee State Park Larrabee State Park 2748.1 Larrabee State Park Leadbetter Point State Park 1698.2 Leadbetter Point State Park Lewis & Clark State Park 626.6 Lewis & Clark State Park Lewis & Clark Trail State Park 36.4 Lewis & Clark Trail State Park Lime Kiln Point State Park 42 Lime Kiln Point State Park Lincoln Rock State Park 74.5 Lincoln Rock State Park Manchester State Park 127.2 Manchester State Park Maryhill State Park 81.2 Maryhill State Park Millersylvania State Park 902.8 Millersylvania State Park Moran State Park 5665 Moran State Park Mount Pilchuck State Park 1903 Mount Pilchuck State Park 13203. Mount Spokane State Park Mount Spokane State Park 4 Nolte State Park 110.5 Nolte State Park Obstruction Pass Property 76 Obstruction Pass State Park Ocean City State Park 219.9 Ocean City State Park Olallie State Park 2338 Olallie State Park Pacific Beach State Park 16.6 Pacific Beach State Park

Palouse Falls State Park 100.1 Palouse Falls State Park Paradise Point State Park 100.8 Paradise Point State Park Pearrygin Lake State Park 1185.2 Pearrygin Lake State Park Penrose Point State Park 236.2 Penrose Point State Park Peshastin Pinnacles State Park 34.4 Peshastin Pinnacles State Park Potholes State Park 774.5 Potholes State Park Potlatch State Park 124.7 Potlatch State Park Rainbow Falls State Park 131.4 Rainbow Falls State Park Rasar State Park 169.2 Rasar State Park 10884. Riverside State Park Riverside State Park 5 Rockport State Park 636.4 Rockport State Park Saint Edward State Park 325.9 Saint Edward State Park Saltwater State Park 136.7 Saltwater State Park Scenic Beach State Park 121.2 Scenic Beach State Park Schafer State Park 122.2 Schafer State Park Seaquest State Park 505.2 Seaquest State Park Sequim Bay State Park 94 Sequim Bay State Park South Whidbey State Park 380.7 South Whidbey State Park Spencer Spit State Park 200 Spencer Spit State Park Squak Mountain State Park 1591.5 Squak Mountain State Park Squilchuck State Park 250.5 Squilchuck State Park Steamboat Rock State Park 5060.4 Steamboat Rock State Park Sun Lakes-Dry Falls State 3825 Sun Lakes-Dry Falls State Park Park Tolmie State Park 154.4 Tolmie State Park Twanoh State Park 187.7 Twanoh State Park Twenty-Five Mile Creek State 232.3 Twenty-Five Mile Creek State Park Park Twin Harbors Beach State 223.3 Twin Harbors Beach State Park Park Wallace Falls State Park 1438.4 Wallace Falls State Park Wenatchee Confluence State 194.1 Wenatchee Confluence State Park Park Westhaven State Park 79 Westhaven State Park Westport Light State Park 236.6 Westport Light State Park Yakima Sportsman State Park 266 Yakima Sportsman State Park

Historical State Parks 11 Parks 8884 Acres 6.4% of total land holdings

Current Park Name Acres Proposed Park Name Cama Beach State Park 387.5 Cama Beach Historical State Park Columbia Hills State Park 3636 Columbia Hills Historical State Park Fort Casey State Park 1000.4 Fort Casey Historical State Park Fort Columbia State Park 623.1 Fort Columbia Historical State Park Fort Flagler State Park 1453.5 Fort Flagler Historical State Park Fort Simcoe State Park 200.8 Fort Simcoe Historical State Park Fort Townsend State Park 640 Fort Townsend Historical State Park Fort Worden State Park 433.5 Fort Worden Historical State Park Olmstead Place State Park 220.7 Olmstead Place Historical State Park Peace Arch State Park 18.7 Peace Arch Historical State Park Sacajawea State Park 269.6 Sacajawea Historical State Park

Marine State Parks 19 Parks 4,019 Acres 2.9% of total land holdings Current Park Name Acres Proposed Park Name Deception Pass State Park 11 Ben Ure Island Marine State Park Blake Island State Park 1127 Blake Island Marine State Park Blind Island State Park 2.4 Blind Island Marine State Park Burrows Island Property 395.1 Burrows Island Marine State Park Clark Island State Park 50.5 Clark Island Marine State Park Doe Island State Park 10 Doe Island Marine State Park Hope Island (Mason) State Park 131.5 Hope Island (Mason) Marine State Park Deception Pass State Park 181 Hope Island (Skagit) Marine State Park James Island State Park 131.8 James Island Marine State Park Jones Island State Park 193.2 Jones Island Marine State Park Matia Island State Park 4.8 Matia Island Marine State Park McMicken Island State Park 221.8 McMicken Island Marine State Park Patos Island State Park 225.7 Patos Island Marine State Park Posey Island State Park 1.1 Posey Island Marine State Park Saddlebag Island State Park 25.5 Saddlebag Island Marine State Park Deception Pass State Park 25 Skagit Island Marine State Park Stuart Island State Park 432.6 Stuart Island Marine State Park Sucia Island State Park 814.4 Sucia Island Marine State Park Turn Island State Park 34.3 Turn Island Marine State Park

State Park Trails

5 Trails 10,38 Acres 9

7.5% of total land holdings

Current Park Name Acres Proposed Park Name Columbia Plateau Trail State Park 3879.8 Columbia Plateau State Park Trail Iron Horse Palouse Property 1927.3 Iron Horse State Park Trail Iron Horse State Park 2336.2 (4901 acres)

Lake Easton State Park Hyak 7 (includes the John Wayne Pioneer Trail) Lake Easton State Park Cle Elum 17 Depot Lake Easton State Park NT Ecosystem 17 Alliance Lake Easton State Park Palmer 55 Lake Easton State Park Crystal Springs 81 Lake Easton State Park Bullfrog 261 Property Olallie State Park - Bandera Property 199 Klickitat Trail Property 324.7 Klickitat State Park Trail Spokane River Centennial Trail 525.4 Spokane River Centennial State Park Trail Property Willapa Hills Trail State Park 759 Willapa Hills State Park Trail Subtotal of State Parks, Historical State Parks, Marine State Parks and State Park Trails 124 Parks 113,6 Acres 45 82.2 of total land holdings %

State Park Heritage Sites

16 Sites

55 Acres

0.4% of total land holdings

Current Park Name Acres Proposed Park Name Colbert House 1 Colbert House Heritage Site Crawford State Park 39.6 Crawford State Park Heritage Site Ebey's Landing 46.1 Ebey's Landing Heritage Site Goldendale Observatory State Park Goldendale Observatory State Park 5 Heritage Site Jackson House State Park 1.4 Jackson House State Park Heritage Site Deception Pass State Park 82 Kukutali Preserve State Park Heritage Site Lake Lenore Caves State Park Heritage Sun Lakes-Dry Falls State Park 191 Site

Matilda N. Jackson State Park Heritage Matilda N. Jackson State Park 5 Site Monticello Convention Site State Park Monticello Convention Site State Park 1 Heritage Site Old Ruby 6.9 Old Ruby State Park Heritage Site Ranald McDonald's Grave State Park Ranald McDonald's Grave State Park 1 Heritage Site Rothschild House State Park 0.5 Rothschild House State Park Heritage Site Spokane Plains Battlefield State Park Spokane Plains Battlefield State Park 1.1 Heritage Site Steptoe Battlefield State Park Heritage Steptoe Battlefield State Park 3 Site Steptoe Butte State Park 168.3 Steptoe Butte State Park Heritage Site Willie Keil's Grave State Park Heritage Willie Keil's Grave State Park 1 Site

Conservation Areas

2 Conservation Areas 9,545. Acres 2

6.9% of total land holdings

Current Park Name Acres Proposed Park Name Green River Gorge - Black Diamond 332.5 Green River Gorge Conservation Area Property Green River Gorge - Hanging Gardens 433.6 (1160* acres) Property * = Three state parks within GRG (acres not Green River Gorge - Jellum Property 350.8 included) Lower Green River Property 43.1 Seashore Conservation Area Seashore Conservation Area 8385.2 (8385.2 acres)

Properties 74 Properties 14,52 Acres 2 10.5 of total land holdings %

Current Park Name Acres Proposed Park Name Camp Calvinwood 115.2 Camp Calvinwood State Park Property Camp William T. Wooten State Park Camp William T. Wooten State Park 40.1 Property Cascade Island 39.0 Cascade Island State Park Property Chance A La Mer OBA State Park Chance A La Mer OBA State Park 3.5 Property Clallam Bay Park Community Beach 49.7 Clallam Bay State Park Property Conconully Lake State Park Property Conconully State Park (parcel) 2.5 (boat launch) Cone Island State Park 10.9 Cone Island State Park Property

Cranberry OBA State Park 1.6 Cranberry OBA (Ocean Beac Access) Crown Point State Park 12.4 Crown Point State Park Property Crystal Falls 160.6 Crystal Falls State Park Property Deadmans Island State Park 351.2 Cutts Island State Park Property Deception Pass State Park 12.0 Deception Island State Park Property Dugualla State Park 600.5 Dugualla State Park Property Eagle Island State Park 5.1 Eagle Island State Park Property Elbow Lake State Park 318.7 Elbow Lake State Park Property Everett Jetty State Park 160.0 Everett Jetty State Park Property Everett Property 0.7 Everett State Park Property Fisk Property 680.3 Fisk State Park Property Forks of the Sky State Park 1364.0 Forks of the Sky State Park Property Sun Lakes(Grant Co. Sportsmen) 179.0 Grant County Sportsmen Property Sun Lakes (Grant Co. Property) 39.0 Grant County State Park Property Grayland Beach Approach Property 5.7 Grayland Beach OBA H J Carroll Site 1.4 H J Carroll State Park Property Haley Property 215.9 Haley State Park Property Fudge Point 55.0 Harstine Island Property 470.8 Harstine Island State Park Property Scott Property 100.0 Helen McCabe State Park 64.4 Helen McCabe State Park Property Hoko River / Cowan Ranch 918.3 Hoko River State Park Property Ice Caves State Park 159.4 Ice Caves State Park Property Iceberg Island State Park 2.9 Iceberg Island State Park Property Joseph Whidbey State Park 205.9 Joseph Whidbey State Park Property Kinney Point 67.4 Kinney Point State Park Property Lake Isabella 188.2 Lake Isabella State Park Property Lake Newport State Park 158.0 Lake Newport State Park Property Lilliwaup Tidelands 20.7 Lilliwaup Tidelands State Park Property Loomis Lake State Park 385.0 Loomis Lake State Park Property Loomis Lake State Park 15.0 Loomis Lake State Park Property

Lopez Island Tidelands 37.9 Lopez Island State Park Property Mercer Slough 89.7 Mercer Slough State Park Property Miller Peninsula 2863.2 Miller Peninsula State Park Property Moclips 5.2 Moclips State Park Property Mud Bay Tidelands 73.4 Mud Bay State Park Property Mystery Bay 18.2 Mystery Bay State Park Property Nisqually State Park 1287.3 Nisqually State Park North Jetty 1.6 North Jetty State Park Property O'Brien-Riggs State Park 93.8 O'Brien-Riggs State Park Property Ocean City OBA State Park 13.2 Ocean City OBA State Park Olga 1.3 Olga State Park Property Oyhut OBA State Park 1.9 Oyhut OBA State Park Pacific Pines State Park 10.3 Pacific Pines State Park Packwood 178.8 Packwood State Park Property Pleasant Harbor State Park 1.2 Pleasant Harbor State Park Property Point of Arches State Park 20.8 Point of Arches State Park Property Possession Point 54.1 Possession Point State Park Property Reed Island State Park 426.8 Reed Island State Park Property Right Smart Cove 2.1 Right Smart Cove State Park Property Brooks Memorial State Park (separate 168.0 Satus Pass State Park Property parcel) Point Hannon Property 7.7 Shine Tidelands Property 45.7 Shine Tidelands State Park Property Wolfe Property 197.1 Skating Lake 335.5 Skating Lake State Park Property Skull Island State Park 3.2 Skull Island State Park Property Sol Duc 443.3 Sol Duc State Park Property Spring Creek Hatchery State Park Spring Creek Hatchery State Park 9.6 Property Square Lake Property 231.7 Square Lake State Park Property Squaxin Island 28.4 Squaxin Island State Park Property Steilacoom Lake Tidelands 2.0 Steilacoom Lake State Park Property

Deception Pass State Park 4.0 Strawberry Island State Park Property Stretch Point State Park 8.2 Stretch Point State Park Property Tilton River 102.0 Tilton River State Park Property Toandos Peninsula Tidelands 62.5 Toandos Peninsula State Park Property Triton Cove State Park 29.9 Triton Cove State Park Property Victim Island State Park 3.6 Victim Island State Park Property WA State Parks Eastern Region HQ 0.9 WA State Parks Eastern Region HQ WA State Parks Headquarters 2.5 WA State Parks Headquarters WA State Parks Northwest Region HQ 0.9 WA State Parks Northwest Region HQ Washougal River 474.6 Washougal River State Park Property

APPENDIX 4

Procedure 72-1 Park Codes, Names and Categories (see Section 3. Park Naming)

Effective Date:______Approved By:______

Supersedes: PRO. # 72-1 (dated 3-20-80) Reference(s): RCW 79A.05.030 Powers and duties; WAC 352-16-010 Naming and Classification of State Park Areas; Cultural Resource Policy 12-98-1; Donor Recognition Policy 37-06-1; and 72-14-1 Naming of Parks, Structures, and Features within State Park Areas and Commission Policy - Park Naming agenda item, March 27, 2014.

PRO 72-1 Park Codes, Names and Categories

Purpose

The purpose of this procedure is to ensure that all state parks areas managed and/or owned are subject to administrative review for determining whether to assign a park code for tracking park attendance and other park history and whether to assign a program index code for tracking operating costs and revenue from program/park business transactions. The procedure also ensures that naming sites within parks and assigning sites to park categories are done in alignment with Commission Policies 72-14-1, 12-98- 1, 37-06-1; RCW 79A.05.030; and WAC 352-16-010.

Definitions

1. Land Classification: A land use and development designation, officially adopted by the Commission, identifying specific types of state park areas as defined in WAC 352-16- 020.

2. Park Categories: The following seven official categories of state park areas are to be used in public information materials when describing the State Park system: State Park, Historical State Park, Marine State Park, State Park Trail, State Park Heritage Site, State Park Conservation Area and State Park Property. The characteristics of each category are defined in Commission Policy 72-14-1.

3. Park Code: A five-digit permanent number assigned to a state park area.

4. Program Index Code: A code assigned to divisions, programs within divisions and/or parks to track costs and/or revenue for specific programs and park business transactions.

5. State Park Areas: All areas dedicated for public park purposes, excluding separately located administrative areas, and under the ownership and/or management of the Washington State Parks and Recreation Commission (WAC 352-16-010).

Procedure

1. Assigning a Park Code

A Park Code is determined by a state park area’s association with either an established long-term boundary, proximity to another park, proximity to a park in-holding, or established as a distinct park. A park code is determined and assigned after the state park area is acquired or otherwise newly established under State Parks management.

1.1 Lands and Acquisition staff collaborate with the Region Manager to determine the new state park area’s association with an established state park area. The Region Manager and the Lands and Acquisition staff determine whether a park code is already in use. If none exists, a new park code is established by the Region Manager.

1.2 Region Manager informs the Park Manager and Information Technology (IT) staff of the new park code.

1.3 Lands and Acquisition staff notify the Geographic Information System (GIS) staff of the new park code.

1.4 The master park code database is maintained by IT staff.

2. Assigning a Program Index Code (aka Cost Code)

A program index code (aka cost code) is assigned to a specific park property or to a program management area when tracking costs or revenue at that level of detail is desired.

2.1 If a Region Manager or Program Manager wishes to track financial data associated with a property and/or program, s/he contacts budget staff to verify whether a program index code already exists. If a new code is needed, the Budget section works with the Financial Services section to establish a new program index code.

2.2 Financial Services maintains all active program index codes on the agency’s administrative shared data storage site (N:Drive - Operating Chart of Accounts).

3. Park Naming

A proposal to change an existing park name or to establish a new park name requires Commission approval (Policy 72-14-1; WAC 352-16-010).

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The Partnership and Planning Manager, in consultation with the Interpretive Manager, is responsible for researching potential park names, and providing recommendations to the Assistant Director for Parks Development and Director, prior to submittal for Commission approval. The Partnership and Planning Manager:

3.1 Researches background data on state park area.

3.2 Determines whether the Commission has previously named the state park area.

3.3 Obtains acquisition data, including from whom property was acquired, date of acquisition, cost of acquisition, method of acquisition, deed restrictions or conditions, site acreage and waterfront footage (if applicable).

3.4 Consults with Interpretive Program Manager to determine whether geographic location, geology, archaeology, or history of site is significant in naming the state park area. As part of the research process to identify a suitable name, the Interpretive Program Manager and Partnership and Planning Manager or designee must contact appropriate federal, tribal, state, and local officials; local historical groups/societies; known interested individuals and organizations; Office of Archaeology and Historic Preservation; State Advisory Committee on Geographic Names (Department of Natural Resources); and any other appropriate State Parks staff or other individuals.

3.5 Evaluates suggested name and solicit and gather public input, in consideration of Commission policies 12-98-1, Cultural Resources Management and 74-14-1, Naming of Parks, Structures and Features within park areas.

3.6 Prepares a draft agenda item for the Commission and submits it to the Assistant Director for Parks Development for recommendation to the Director. The Director, in turn, reviews and determines whether to submit the agenda item to the Commission for its consideration and adoption.

4. Naming State Park Areas within a Park

The Commission has delegated to the Director (Commission Policy 72-14-1) the authority to approve naming of constructed features (roads, trails, buildings, etc.), landscapes, natural features or other state park areas within a park.

Naming a state park area within a park can be performed before, during, or following a Classification and Management Plan (CAMP) process. Staff proposing to create or modify a name must work closely with the Partnership and Planning Manager or designee to review the proposed name for consistency with Commission naming policy, including preference to geographic locations, culturally significant events and places, or special geologic features.

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4.1 Partnership and Planning Manager or designee performs research to determine the characteristics of the state park area.

4.2 Partnership and Planning Manager or designee prepares a recommendation to the Assistant Director for Parks Development for review and approval for submittal to the Director.

5. Determining or Assigning Park Categories

The official categories defined in Commission Policy 72-14-1 must be used in public information materials and applied in the calculation of the number of distinct properties per category in the State Park system.

There are certain actions that may require updating park categories:

1. Capital project improvements 2. Land acquisitions 3. Surplus property 4. Transfer of property

Staff overseeing any of the above actions will notify the Partnership and Planning Manager or designee to determine whether the action should result in an initial establishment or change in a park category. If the Partnership and Planning Manager or designee concludes that a change may be appropriate, the following process is followed:

5.1 The Partnership and Planning Manager or designee will assess the characteristics of the state park area when developing a park category recommendation to the agency Director, through the Assistant Director for Parks Development. The manager will conduct research to determine the appropriate category for the state park area based on land characteristics and public use emphasis, using definitions in Policy 72-14-1, to develop a recommendation.

5.2 The Partnership and Planning Manager or designee prepares a memorandum that recommends a category for the state park area. The recommendation to the Assistant Director for Parks Development should include:

A. Purpose of Requested Action B. Background (significant features of the site/land, principal use by the public) C. Results of consultation with stakeholders, as appropriate D. Recommendation for categorization.

5.3 The Partnership and Planning Manager or designee submits the memorandum to the Assistant Director for Parks Development for review, input and approval.

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5.4 The Assistant Director for Parks Development submits the approved memorandum to the agency Director for approval.

5.5 The agency Director informs the Executive Leadership Team of any change in park category.

5.6 Executive Leadership Team members identify and complete tasks based on the category change, including, but not limited to updates to the agency internet and intranet, park publications, agency databases and other documents of public record.

5.7 The Assistant Director for Parks Development or designee will maintain the agency’s official park category list and post it on the agency’s shared drive and public website.

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Item E-6: 2019-2021 Washington Wildlife and Recreation Program State Parks Category - Requested Action

EXECUTIVE SUMMARY: This item asks the Washington State Parks and Recreation Commission to approve a list of projects for which staff will seek grant funding from the Washington Wildlife and Recreation Program’s State Parks category. This item advances the Commission’s strategic goal, “Develop amenities and acquire lands that advance transformation.” This item was originally introduced at the Commission’s January 25, 2018 meeting. The Commission anticipates resuming deliberation of this item at its March 22, 2018 regular business meeting in Monroe, Washington.

SIGNIFICANT BACKGROUND INFORMATION: In 1989, business, political, and environmental leaders formed the Washington Wildlife and Recreation Coalition (WWRC). This group enlisted former governors Dan Evans and Mike Lowry as co-chairs to lead an effort to create in statute the Washington Wildlife and Recreation Program (WWRP). Former State Parks commissioners Joan Thomas and Russ Cahill were among the founding board members of the WWRC. Today, the WWRC consists of a coalition of 250 organizations representing conservation, business, farming, labor, and recreation interests who advocate for state funding for the WWRP.

The WWRP provides funding for a broad range of land protection and outdoor recreation projects, including park acquisition and development, habitat conservation, farmland preservation, and construction of outdoor recreation facilities. The program was envisioned as a way for the state to accomplish two goals: acquire valuable recreation and habitat lands before they are lost to other uses, and develop recreation areas for a growing population. WWRP includes twelve categories for funding, one of which is the State Parks category.

WWRP is administered by the Washington State Recreation and Conservation Office (RCO). By statute, the WWRP includes three accounts, Habitat Conservation Account, Outdoor Recreation Account, and Farm and Forest Account. The Habitat and Conservation Account and the Outdoor Recreation Account each receive 45% of the total biennial WWRP appropriation approved by the legislature, and the Farm and Forest Account receives 10% (see Appendix 1). Thirty percent of the Outdoor Recreation Account is distributed to a State Parks category dedicated entirely to land acquisition and development of state parks. By statute, at least forty percent, but no more than fifty percent of funds in the State Parks category must be used for land acquisition. State Parks is the only recipient of WWRP funding with its own dedicated category. The WWRP State Parks category funds cannot be used for restoration or renovation of existing facilities and infrastructure, only for acquisitions or new developments.

The amount of WWRP State Parks category funding the agency receives each biennium is a function of the total legislatively approved capital budget appropriation for the WWRP. In past biennia, the total WWRP appropriation has ranged from $35 million to $100 million (see Appendix 2). As an example, if the Legislature were to appropriate $50 million for WWRP projects, State Parks would receive about $6.5 million in grant funding that biennium, and if the total WWRP appropriation were $100 million, State Parks would receive $12.9 million. Since

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the first WWRP appropriation in 1990, the State Parks category has received nearly $113 million.

Project Evaluation Because of the need to present fully vetted, ranked project lists to the legislature in advance of the legislative session, the grant process, from application to grant award, spans 18 months. The grant process for the WWRP State Parks category begins in January of even-numbered years, before applications are due. At the Commission’s January meeting, it is asked to approve a list of proposed State Parks category projects for the next round of applications. The Commission may add or remove projects from the list. Then applications are submitted electronically through RCO’s online grant management system in early May.

In advance of the formal project evaluation, applicants are invited to a technical review meeting in May, where they present their project to WWRP advisory committees and RCO staff. The State Parks category advisory committee is made up of twelve people, six external members selected by RCO, and six State Parks staff members. The technical review process ensures that projects are eligible, identifies any issues with the proposals, and provides feedback on each proposal’s strengths and weaknesses.

During the formal evaluation in August, applicants make an oral presentation to the advisory committee, which scores each proposal against a set of criteria adopted by the Recreation and Conservation Funding Board (RCFB) (see Appendix 3). In addition to the criteria scored by the advisory committee, the State Parks category also has one question that is scored by the Commission at their July meeting. The Commission will be asked how well each project implements the Commission’s priorities. Each commissioner will rank the projects from highest to lowest. The advisory committee’s and the Commission’s scores are then combined to create a ranked list of projects. In October, the RCFB considers the ranked project lists. This is an open public meeting, and comments and testimony from the public are welcome. The RCFB’s approved projects lists are then submitted to the governor. The ranked lists normally include alternate projects for each category, in the event that approved projects are later not able to be completed, or if additional funding becomes available. The governor may remove projects from the RCFB ranked lists, but may not re-rank or add projects to the lists.

Projects funded by the legislature are intended to be completed to the fullest extent possible within that biennium, but project lists are active until all the funding is used or until there are no remaining feasible projects on the list. If a biennial list is completed and funds still remain, they may be awarded to legislatively approved alternate projects in future years. See Appendix 4 for the 2017-19 ranked list of WWRP-State Parks category projects. These projects have not yet been funded, due to the lack of a capital budget.

Operating Budget Impacts Proposed land acquisition projects for the 2019-2021 biennium do not initiate the creation of any new, stand-alone state parks. Instead, projects seek to acquire properties that are:  Within or adjacent to existing state parks

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 Within delineated long-term park boundaries adopted by the Commission as part of public outreach and planning efforts  Within or adjacent to undeveloped park properties undergoing initial property assembly.

Impacts, both positive and negative, on park operations and the agency operating budget necessarily result from both land acquisition and development projects. Staff intends to assess these costs during the detailed project scoping and preparation of grant materials. Identified costs, depending on their scope, will them be consciously absorbed or reflected in the agency’s operating budget request.

Staff believes that incurring operating costs as a result of land acquisition or facility development is appropriate in some circumstances, particularly where these projects demonstrate the value of the park system to all Washingtonians, and therefore help build support for the agency through advocacy, partnerships, volunteerism, and other forms of support.

STAFF RECOMMENDATION: Appendix 5 is a list of new WWRP State Parks category proposals for Commission consideration. These projects are the result of a collaborative effort between region and headquarters staff in both Operations and Parks Development to identify the projects most likely to score well with the grant criteria. Staff also considered likely funding levels to avoid having staff spend time applying for more grants than can be funded.

The Statewide Acquisition and Development Strategy adopted by the Commission in July 2016 served as the inspiration for the recommended projects. The project descriptions in Appendix 5 reference which of the 5 Acquisition and Development Strategy goals the project supports (Places to Be, Stories to Know, Things to Do, Ways to Grow, or Something for Everyone), or for some of the acquisition proposals, whether the property is within a designated long-term park boundary. The Statewide Acquisition and Development Strategy identified long-term park boundaries as the primary guidance that should drive land acquisitions within or adjacent to existing state parks.

Staff recommends that the Commission approve the land acquisition and development projects described in Appendix 5. If approved, staff will prepare detailed project scopes, cost estimates, construction timelines, and other detailed information in support of each grant application.

The project scopes and cost estimates provided to the Commission at this time are preliminary and conceptual, and have only been developed to the extent necessary to determine whether they are serious grant candidates. The projects in Appendix 5 are unranked and listed in alphabetical order.

It should also be noted that staff may not ultimately have the capacity to submit applications for all of the recommended projects. Through scoping, staff may determine that a project is better suited to a different grant category, or that it is not feasible at this time. Staff therefore recommends that the Commission authorize the Director to defer applications for specific projects or pursue funding for projects through other grant categories.

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The list in Appendix 5 also includes alternate projects. Projects on the alternate list were determined to exceed staff’s capacity to prepare grant requests. If any of the recommended projects are not able to move forward due to problems like unwilling sellers, then a replacement project from the alternates list may be selected. Additionally, some of the alternate projects are ones that may receive funding through the 2017-19 capital budget, if it is approved. If they are not funded through that budget, staff anticipate applying for grants to fund them. Staff recommends that the Commission authorize the Director to substitute projects from the alternate list if any of the recommended projects must be deferred.

LEGAL AUTHORITY: RCW 79A.05.030 Powers and duties - Mandatory RCW 79A.15.050 Outdoor recreation account - Distribution and use of moneys

SUPPORTING INFORMATION: Appendix 1: WWRP Categories and Funding Allocations Appendix 2: Past WWRP Appropriations Appendix 3: WWRP State Parks Category Scoring Criteria Appendix 4: 2017-2019 WWRP State Parks Category Ranked List Appendix 5: Proposed 2019-2021 WWRP State Parks Category Projects

REQUESTED ACTION OF COMMISSION: That the Washington State Parks and Recreation Commission: 1. Authorize the Director or designee to seek funding from the Washington Wildlife and Recreation Program State Parks Category in the 2019-2021 biennium for the projects listed in Appendix 5 2. Authorize the Director or designee to defer applications for specific projects or pursue funding for projects through other grant categories 3. Authorize the Director or designee to make necessary project scope and cost changes as project applications are prepared 4. Authorize the Director or designee to substitute projects in the alternates list in Appendix 5 for projects that are found to be infeasible through the detailed scoping process

Author(s)/Contact: Nikki Fields, Parks Planner (360) 902-8658 [email protected]

Reviewer(s): Jessica Logan, SEPA Review: Following review, staff has determined that the action proposed for the Commission by staff is exempt from the State Environmental Policy Act (SEPA) pursuant to WAC 197-11-800 (14)(d). Christeen Leeper, Fiscal Impact Statement: The fiscal impact on the operating budget will be assessed and identified as the projects are more fully developed. Operating costs will be identified, and if needed, funding will be requested through the budget request process. Michael Young, Assistant Attorney General: Reviewed December 18, 2017 Peter Herzog, Assistant Director

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Approved for Transmittal to Commission

Don Hoch, Director

APPENDIX 1 WWRP CATEGORIES AND FUNDING ALLOCATIONS

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State Parks 30%

Local Parks 30%

Outdoor Recreation Account Trails 45% 20%

State Lands Development 10%

Water Access 10%

Critical Habitat 35%

Natural Area 25% WWRP Appropriation

Habitat Conservation Account Riparian 45% 15%

Urban Wildlife 15%

State Lands Restoration 10%

Farmland 90% Farm & Forest Account 10% Forestland 10%

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APPENDIX 2 PAST WWRP APPROPRIATIONS

BIENNIUM FUNDING (Million) 1990 $53 M 1991 – 1993 $60 M 1993 – 1995 $65 M 1995 – 1997 $45 M 1997 – 1999 $45 M 1999 – 2001 $48 M 2001 – 2003 $45 M 2003 – 2005 $45 M 2005 – 2007 $50 M 2007 – 2009 $100 M 2009 – 2011 $70 M 2011 – 2013 $42 M 2013 - 2015 $65 M 2015 - 2017 $55 M 2017 - 2019 $80 M Proposed

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APPENDIX 3 WWRP STATE PARKS CATEGORY SCORING CRITERIA

1. Public Need and Need Satisfaction. What is the need for the proposed project? To what extent will the project satisfy the need? Consider the following: • Cited in a Classification and Management Plan (CAMP), if one exists? • Identified in a park master plan or other approved planning document? • Included in the current State Parks’ 10-year capital plan? • Consistent with State Parks’ strategic plan? • Project or property is suited to serve the state need? • To what degree will the project: o Further care for Washington’s most treasured lands, waters, and historic places. o Connect more Washingtonians to their diverse natural and cultural heritage. o Improve quality or expand capacity for recreational and educational experiences.

Point Range below. Evaluators award a maximum of 5 points.

0 points No CAMP or other plan, indirectly implements mission and vision. 1-2 points Implements mission and vision despite a CAMP. Adequately addresses stated need. 3-4 points Implements mission and vision. Consistent with CAMP or other plan, resolves a management problem, essential to a partnership, or will increase park visitation. Greatly addresses stated need. 5 points Strongly implements mission and vision. High priority in a CAMP or other plan, resolves a management problem, essential to a partnership, or will increase park visitation. Maximizes the satisfaction of the stated need.

2. Project Significance. Describe how this project supports State Parks’ strategic goals. Does it: • Serve underserved visitors or communities? • Protect or restore natural or cultural resources? • Have a demonstrated ability to save money or increase park net revenue? • Provide recreational, cultural, or interpretive opportunities people want? • Promote meaningful opportunities for volunteers, friends, and partners? • Facilitate a meaningful partnership with other agencies, tribes, or non-profits?

Point Range below. Evaluators award a maximum of 5 points that are multiplied later by 3.

0 points Does not directly support strategic goals 1-2 points Indirectly supports one or two strategic goals

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3-5 points Directly supports at least one strategic goal or indirectly supports three or more strategic goals 3. Threat and Impacts (acquisition and combination projects only). Describe why it is important to acquire the property now. Consider: • Is there an immediate threat to the property that will result in a loss in quality or availability of future public use? • Will the acquisition result in additional operating impacts, and if so, is there potential for those impacts to be offset by additional revenue?

Point Range below. Evaluators award a maximum of 5 points. Scores for acquisition projects are multiplied later by 2.

0 points No evidence of threat to the property, and/or the acquisition will result in unreasonable operating impacts 1-2 points Minimal threat to the property, or the acquisition will result in moderate operating impacts 3-5 points Imminent threat of the property losing quality or becoming unavailable for future public use, or a threat led to a land trust acquiring rights in the land at the request of State Parks, and operating impacts will be minimal or offset by additional revenue

4. Project Design (development and combination projects only). Is the project well designed? Consider the following: • Does this property support the type of development proposed? Describe the attributes: size, topography, soil conditions, natural amenities, location and access, utility service, wetlands, etc. • How does the project design make the best use of the site? • How well does the design provide equal access for all people, including those with disabilities? How does this project exceed current barrier-free requirements? • Does the nature and condition of existing or planned land use in the surrounding area support the type of development proposed? • How does the design conform to current permitting requirements, building codes, safety standards, best management practices, etc.? What, if any, are the mitigation requirements for this project? • Does the design align with the described need? • Are the access routes (paths, walkways, sidewalks) designed appropriately (width, surfacing) for the use and do they provide connectivity to all site elements? • For trails, does the design provide adequate separation from roadways, surfacing, width, spatial relationships, grades, curves, switchbacks, road crossings, and trailhead locations? • Is the cost estimate realistic?

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Point Range below. Evaluators award a maximum of 5 points. Scores for acquisition projects are multiplied later by 2.

0 points Design is not appropriate for the site or the intended use 1-2 points Design is moderately appropriate for the site and the intended use 3-4 points Design is very appropriate for the site and the intended use, it addresses most elements of the question, and cost estimates are accurate and complete 5 points Design addresses all elements of the question very well, and cost estimates are accurate and complete

5. Sustainability and Environmental Stewardship. What techniques or resources are proposed to ensure the project will result in a quality, sustainable, recreational, cultural preservation, or educational opportunity, while protecting the integrity of the environment?

Describe how the project will protect natural resources and integrate sustainable elements such as low impact development techniques, green infrastructure, or environmentally preferred building products.

Point Range below. Evaluators award 0-5 points that are multiplied later by 2.

0 points No or little stewardship elements. 1-2 points Contains stewardship elements and protects natural or cultural resources. Consistent with State Parks’ Sustainability Plan and goals. 3-4 points Numerous stewardship elements, protects and enhances natural resources or cultural resources. Implements many of State Parks’ sustainability goals. 5 points Maximizes natural or cultural resource protection, enhances natural resources or cultural resources, and contains innovative and outstanding stewardship elements. Implements many of State Parks’ sustainability goals.

6. Expansion/Phased Project. Does this project implement an important phase of a previous project, represent an important first phase, or expand or improve an existing site? Consider: • Is the project part of a phased acquisition or development? • To what extent will this project advance completion of a plan or vision? • Is this project an important first phase? • What is the value of this phase?

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• How does the project complement an existing site or expand usage, preservation, or education within a site?

Point Range below. Evaluators award a maximum of 5 points that are multiplied later by 3.

0 points Neither a significant phase or expansion, nor a distinct stand-alone project 1-2 points Project is a quality or important phase or expansion 3-4 points Project is a key first phase or expansion or moves a project significantly towards realizing a vision 5 points Project is a highly important first phase, final (or near final phase), moves a project a great deal towards realizing a vision.

7. Project Support. What is the extent to which the public (statewide, community, or user groups) has been provided with an adequate opportunity to become informed, or support for the project seems apparent.

Broadly interpret the term project support to include, but not be limited to: • Extent of efforts by the applicant to identify and contact all parties, (i.e. an outreach program to local, regional, and statewide entities). • The extent that there is project support including: o Voter-approved initiatives, bond issues, referenda o Public participation and feedback o Endorsements or other support from advisory boards and user and friends groups o Media coverage

Point Range below. Evaluators award a maximum of 5 points that are multiplied later by 2.

0 points No evidence presented. 1-2 points Marginal community support. Opportunities for only minimal public involvement (i.e. a single adoption hearing), or little evidence that the public supports the project. 3 points Adequate support and opportunity presented for participation. 4-5 points The public has received ample and varied opportunities to provide meaningful input into the project and there is overwhelming support. The public was so supportive from the project’s inception that an extensive public participation process was not necessary.

8. Partnerships or Match. Describe how this project supports strategic partnerships or leverages matching funds. Consider:

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• Does the project help form strategic partnerships with other agencies, tribes, or nonprofits? (A strategic partnership is one that ultimately is expected to offset expenses, leverage investments, or stimulate activity that directly or indirectly generates a financial return.) • Does the partnership facilitate a key State Parks’ goal or objective? • Does the project have a match of cash, grants, or in-kind services?

Point Range below. Evaluators award a maximum of 5 points.

0 points No partners or match 1-2 points One partner or up to 10 percent match 3-4 points Two partners or 10.01-24.99 percent match 5 points Three or more partners or 25 percent or more match

9. Readiness to Proceed. Describe the project’s timeline. Is the project ready to proceed? Consider: • For development projects, is it fully designed and permitted? • For acquisition projects, is there written documentation indicating a willing seller? • For acquisition projects, is there a written sales agreement or option with the property owner? • Are there any significant zoning, permitting issues, or encumbrances? • Has State Parks completed an economic impact analysis or business plan for the project that identifies operational impacts and potential for revenue enhancement?

Point Range below. Evaluators award a maximum of 5 points that are multiplied later by 2.

0 points Not ready, business case not evident. (Acquisition) No agreement with landowner and fiscal impact will be substantial and require operational impact from the Legislature. (Development) No construction drawings, no formal (or negative) business case determined, and fiscal impact will be substantial and require operational impact from the Legislature.

1-2 points (Acquisition) Willing seller and economic impact analysis identified or positive cost benefit. (Development) Construction drawings at or near 60 percent complete. Economic impact analysis identifies minimal operating impacts. Positive cost-benefit analysis exists.

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3-4 points (Acquisition) Property (purchase) secured in some way by legal instrument to include a letter of intent, or being held in trust or by a non- governmental organization (for example). Positive cost-benefit analysis exists. (Development) Construction drawings at or more than 60 percent complete and economic impact analysis identifies potential revenue from the project or positive cost-benefit analysis exists.

5 points (Acquisition) State Parks has “Purchases and Sale Agreement or Option” and the purchase will be made within its existing term, has very strong business case, and cost-benefit analysis exists. (Development) Plans completed and all permits in hand, economic analysis identified potential revenue from the project. Positive cost-benefit analysis exists. Completed business plan identifies potential revenue from the project.

Scored by Washington State Parks and Recreation Commission -Applicants do not answer. 10. Commission’s Priority. How well does this project implement the commission’s priorities?

Point Range: 0-6 (after multiplier). The commission provides RCO with a ranked list of its applications. RCO assigns a point value to each project based on its rank. The highest priority project shall receive a point score equal to the number of applications ranked, and the lowest priority application shall receive a value of 1.

RCO will apply a variable multiplier to the scores so the highest ranked application will receive a point value of 6, and all other applications will have a point value less than 6 and proportional to their rank.

Scored by RCO Staff—Applicants do not answer. 11. Proximity to Human Populations. Where is this project located with respect to urban growth areas, cities and town, and county density?

This question is scored by RCO staff based on a map provided by the applicant. To receive a score, the map must show the project location and project boundary in relationship to a city’s or town’s urban growth boundary.

Point Range below. The result from A is added to the result from B. Projects in cities with a population of more than 5,000 and within high density counties receive points from both A and B. RCO staff awards a maximum of 3 points.

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A. The project is in the urban growth area boundary of a city or town with a population of 5,000 or more. Yes 1.5 points No 0 points

AND

B. The project is in a county with a population density of 250 or more people per square mile. Yes 1.5 points No 0 points

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APPENDIX 4 2017-2019 WWRP STATE PARKS CATEGORY RANKED LIST

Rank Project Project Name Grant Match Total Number Request Amount 1* 16- Lake Sammamish Picnic Area $2,739,500 $2,739,500 $5,499,750 1975D Sunset Beach Phase 7 2 16- Iron Horse Tekoa Trestle Decking $1,450,612 $83,775 $1,534,387 1320D and Railing 3* 16- Inholdings and Adjacent Properties $1,000,000 $350,000 $1,350,000 1974A 4* 16- Iron Horse Renslow Trestle Decking $1,235,663 $10,600 $1,246,263 1886D and Railing 5 16- Iron Horse Malden to Rosalia Trail $1,664,947 $80,000 $1,744,947 1930D Development 6** 16- The Klickitat Trail Bridging the $1,522,500 $87,500 $1,610,000 1887D Final Gap 7 16- Lake Sylvia State Park Pavilion $646,350 $200,000 $846,350 1925D 8 16- Dosewallips Campsite Relocation $1,411,137 $244,951 $1,656,088 1812D 9 16- Kopachuck State Park Beach Area $1,224,000 $0 $1,224,000 1994D Improvements 10* 16- Moran Lawrence Point Acquisition $2,874,520 $0 $2,874,520 1985A 11 16- North Head Lighthouse Access $406,920 $0 $406,920 2068D Improvements 12** 16- Jones Property Acquisition Moran $2,182,300 $0 $2,182,300 1950A State Park 13 16- San Juan Area Harndon Island $888,760 $1,100 $889,860 1728A Acquisition 14 16- Willapa Hills Trail Marwood Farms $676,871 $40,000 $716,871 1926A Acquisition 15 16- Miller Peninsula Jones Trust $1,040,998 $1,000 $1,041,998 1933A 16 16- Brooks Memorial State Park $434,746 $0 $434,746 1624A $21,399,824 $3,859,176 $25,259,000

*Funded at proposed $80 million WWRP appropriation **Partially funded at proposed $80 million WWRP appropriation (The Klickitat Trail project would receive $1.202 million, and the Jones Property acquisition would receive $1.303 million)

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Note: In the proposed $80 million WWRP budget, all of the unfunded projects are alternates, with the exception of the Tekoa Trestle project and the Malden to Rosalia project. Alternates can be funded later if additional funds become available.

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APPENDIX 5 PROPOSED 2019-2021 WWRP STATE PARKS CATEGORY PROJECTS

Proposed Acquisition Projects

Flaming Geyser - Nelson Property $ 600,000 This approximately 37-acre property adjacent to Flaming Geyser State Park includes the furthest downriver portion of the Green River Gorge. The property also includes a well, which may be useful since the park currently does not have a water system. The property is within the long- term boundary, and the owner is willing to sell.

Inholdings and Adjacent Properties 2018 $1 million This project will purchase small or low-cost properties within or adjacent to the boundaries of existing state parks. It is intended to be a flexible source of funding for opportunities that present themselves through the biennium. This grant will allow State Parks to act quickly to purchase inholdings as they come on the market, and it will facilitate the purchase of smaller properties that might not score well as individual competitive grants, but that are nonetheless essential to park operations. This project support the Acquisition and Development Strategy by infilling long-term park boundaries, or by supporting the other strategy goals. The specific goals will vary, depending on which properties are acquired.

Joemma Beach - Foss Property $1.5 million This 133-acre property north of the park is included in the long-term boundary, and includes approximately 5,000 feet of Puget Sound shoreline, along with feeder bluffs, forested uplands, and a stream. It will also allow for the park to have a trail system.

Moran - Jones Property $900,000 This 140-acre property is completely surrounded by Moran State Park. It has been a priority acquisition for over 85 years, and it is included in the park’s long-term boundary. The acquisition will allow for the development of multi-use trails in the park. The total property cost is estimated to be $2.2 million, and $1.3 million is expected from a 2016 grant. This project will secure the remaining $900,000 needed to complete the acquisition.

Moran - Wilcox Property $350,000 This 55-acre property would add to the park’s shoreline on the Strait of Georgia in the northeast corner of the park. Most of the shoreline along the Strait is high-bank, but this property would provide an opportunity for the park’s trail users to walk to the water. This property supports the Acquisition and Development Strategy goal of Things to Do.

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Mount Spokane—Mount Kit Carson and Scout Properties $365,000 The Mount Kit Carson property is 153-acres owned by Boston Timber, and is completely surrounded by Mount Spokane State Park. The park’s trail system runs through this private property. The current owners are willing to sell, so now is a good opportunity to resolve this park inholding. The Scout property is an 80-acre parcel completely surrounded by the park. The property formerly included a Boy Scout camp, closed in 1979. The current owner of the property is a willing seller. Both properties are within the park’s long-term boundary.

Obstruction Pass - Spring Bay Property $1.2 million This 56-acre property east of Obstruction Pass will provide easier beach access and possibly cabins or a small campground. This acquisition supports the Acquisition and Development Strategy goal of Things to Do. This acquisition may include a partial donation which could reduce the purchase price considerably.

Steamboat Rock - Northrup Canyon Brunner Property $2 million This approximately 2,400-acre property east of Steamboat Rock includes the headwaters of Northrup Canyon. The property is within the park’s long-term boundary. This acquisition also supports the Acquisition and Development Strategy goal of Places to Be, due to its Ice Age flood-formed landscape.

Steptoe Butte - Bassett Property $700,000 This approximately 450-acre property includes a portion of the road that leads to the top of the butte, so it is likely that some park visitors already believe it is part of the park. This acquisition will help protect the butte’s south-facing views of the Palouse. The acquisition is supported by the people who attended a recent CAMP meeting for the park. As part of Steptoe Butte, this acquisition supports the Acquisition and Development Strategy goal of Places to Be.

Proposed Combination Projects

Haley Property - Anne Haley Property and Initial Park Development $600,000 This project will acquire a 49-acre parcel within the long-term boundary of the Haley Property. The project will also develop a trailhead and a trail to the beach, resolving a grant compliance issue with the property.

Proposed Development Projects

Cape Disappointment - North Head Lighthouse ADA $400,000 This project will develop an accessible route and viewpoint so that people with disabilities can visit one of the most iconic landscapes and structures in Washington. This project supports the Acquisition and Development Strategy goal Stories to Know.

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Columbia Plateau Trail - Amber Lake to Martin Road $2.6 million This project will complete the third phase of development of the Columbia Plateau Trail, which runs 130 miles from Cheney to Pasco. The project will add crushed rock surfacing to the trail and will make improvements to two trestles. This project supports the Acquisition and Development Strategy goal of Things to Do.

Dosewallips - RV Camp Loop $1.4 million This project will replace 38 standard campsites that flood regularly with 14 utility campsites in a new location that will be useable year-round. The project will also develop a comfort station for the new camp loop. This project is part of an extensive, multi-year, multi-phased habitat restoration project that is being conducted in association with the Wild Fish Conservancy. The Wild Fish Conservancy is also contributing over $240,000 to this project as match (not included in the estimate above). This project supports the Acquisition and Development Strategy goal of Something for Everyone.

Iron Horse - Malden to Rosalia Trail Development $1.2 million This project will develop 9 miles of trail between the towns of Malden and Rosalia, the first trail development east of the Columbia River on Iron Horse. The project’s design and cultural resources review are already complete, and this project will secure permits and complete construction. This project is included in the park’s Master Plan, and supports the Acquisition and Development Strategy goal of Things to Do.

Iron Horse - Tekoa Trestle Decking and Railing $1.5 million This project will add decking and safety railings to the 975-foot long Tekoa trestle, connecting the town of Tekoa to Iron Horse State Park Trail. Completing this project will complete a “missing link” that will result in a contiguous 34-mile trail experience from Malden to the Idaho border. This project is included in the park’s Master Plan, and supports the Acquisition and Development Strategy goal of Things to Do.

Kopachuck - Beach $1.2 million This project will redevelop the beach area at Kopachuck State Park to enhance its appeal as a day-use park after the campground was closed. It will include parking, ADA access, a hand boat launch, a restroom, pathways, scenic viewpoints, a picnic plaza, a pocket beach, and a marine trail campsite. This project was included in the park’s Master Plan, and supports the Acquisition and Development Strategy goal of Things to Do.

Lake Wenatchee - Pedestrian Bridge $2.3 million This project will install a pedestrian bridge across the Wenatchee River to connect the park’s north and south campgrounds. Currently the only connection between the two areas is on a

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highway bridge without shoulders for pedestrians. This project supports the Acquisition and Development Strategy goal of Places to Be.

Willapa Hills Trail - Raymond to Lebam $1.3 million This project will improve 15 miles of trail between the city of Raymond and the community of Lebam with compacted gravel surfacing and improve several trail features. Specific improvements will be used to construct a bridge at mile 38.59 and improve existing bridges with safety rails and surfacing. The project will address embankment scouring at bridge 48. Trailheads at Lebam and Menlo will receive ADA compliant parking and vault toilets and directional and information signs. This project supports the Acquisition and Development Strategy goal of Things to Do.

Total Proposed Acquisition Projects: $8,815,000 Total Proposed Development Projects: $12,300,000

Alternate Acquisition Projects

Green River Gorge—Butt Property $300,000 This 24-acre property includes a portion of the Green River Gorge and it provides access around a tight point in the proposed trail system along the north rim of the Gorge. This property supports the Acquisition and Development Strategy goal of Places to Be.

Joemma Beach - Camp Joshua Taylor Property $600,000 This 20-acre property directly east of the park is within the park’s long-term boundary, and was identified as a future group camping facility.

Miller Peninsula Property - Jones Trust Property $1.1 million This 21-acre property includes ¼ mile of shoreline on the Strait of Juan de Fuca. It is one of the few places along the north side of Miller Peninsula where it may be possible to build beach access, since most of the current property is high bank. This property supports the Acquisition and Development Strategy goal of Places to Be.

Moran - Youngren Property $6 million This 247-acre property connects Moran State Park to the water at East Sound. It would provide opportunities for additional parking and a possible shuttle service to busy areas of the park, as well as opportunities for cabin or camping development. This property supports the Acquisition and Development Strategy goal of Places to Be.

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Willapa Hills Trail - Marwood Farms Property $700,000 This 178-acre property near Ceres Hill Road would provide access to the Chehalis River, as well as picnicking and camping opportunities. The acquisition would also resolve conflicts with local landowners who drive on the trail. This property supports the Acquisition and Development Strategy goal of Things to Do.

Alternate Development Projects

Anderson Lake - Olympic Discovery Trail Connection $400,000 This project would construct the section of the Olympic Discovery Trail that runs through Anderson Lake State Park. In addition to the Olympic Discovery Trail, this trail segment would also serve as part of the Pacific Northwest National Scenic Trail. This project supports the Acquisition and Development Strategy goal of Things to Do.

Columbia Plateau Trail - Snake River to Farrington $2 million This project will complete the 3rd phase of development of the Columbia Plateau Trail. Staff is investigating whether this project or the Amber Lake to Martin Road project is more likely to score well. The intention is to apply for only one of the two. This project supports the Acquisition and Development Strategy goal of Things to Do.

Deception Pass - Bowman Bay Pier $1.3 million This project would replace the current, structurally deficient and environmentally unsound pier at Bowman Bay and make ADA improvements to the site. A recent condition assessment resulted in a recommendation to immediately restrict access across a portion of the current pier. This project supports the Acquisition and Development Strategy goal of Things to Do.

Klickitat Trail Final Gap $1.6 million This project would replace the bridge over the Klickitat River at Suburbia and construct a new bridge over Snyder Creek in Klickitat. The project will also add parking near the Suburbia bridge, a trailhead at Wahkiakus, and trail surfacing between Klickitat and Wahkiakus. This grant is only needed if the 2016 grant is not funded. This project supports the Acquisition and Development Strategy goal of Things to Do.

Lake Sylvia Pavilion $850,000 This project would construct a 3,000 square foot pavilion at Lake Sylvia State Park in cooperation with the Friends group. The project includes an ADA-compliant walkway, parking, and flush restrooms. This project is only needed if the project is not funded through the capital budget. This project supports the Acquisition and Development Strategy goal of Things to Do.

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Sacajawea Trail Connection $1.1 million This project would connect the 23-mile Sacagawea Heritage Trail to Sacajawea Historical State Park. It would develop a 0.7 mile, 12-foot wide multi-purpose trail from the park entrance to the day-use area. This project supports the Acquisition and Development Strategy goal of Things to Do.

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Item E-7: Financial Update - Report

EXECUTIVE SUMMARY: This item reports to the Washington State Parks and Recreation Commission on the status of: 1) State Parks’ 2017-19 biennium operating and capital budget expenditures, 2) Parks Renewal and Stewardship Account (PRSA) revenue, and 3) State Parks’ 2018 supplemental budget requests. This item advances the Commission’s strategic direction: “Adopting a business approach to park system administration”.

CURRENT BIENNIUM FINANCIAL INFORMATION (2017-19)

2017-19 Biennium Operating Budget and Expenditures: State Parks’ initial 2017-19 biennial operating budget is $165.4 million. The general operations budget is $144.7 million. Of the $144.7 million, $29.6 million is supported by tax dollars from the General Fund and Litter Tax revenue. The remainder is supported by earned revenue. When the 2018 supplemental budget is passed, these numbers will change.

As of January 2018, the agency spent $49.5 million, of which $40.7 million was for general operations. The biennium-to-date spending variance for general operations is a positive $400K due to transfers of capital costs out of the operating budget to the capital budget. These transfers were made possible by the newly enacted capital budget.

The November 30, 2017 PRSA fund balance is $9.1 million, down $5.4 million from the September 30, 2017 balance of $14.5 million. This decline in fund balance is expected and will continue during the off-season months.

2017-19 Biennium Capital Budget and Expenditures: With the legislative adoption of the 2017-19 capital budget, State Parks capital budget now totals $61.5 million from the State Building and Construction Account. This is comprised of $45.6 million for new projects and $15.9 million for re-appropriated projects. In addition, spending authority and grant dollars are available and currently total $19.9 million. The capital budget totals $81.4 million as of January 31, 2018.

As of January 31, 2018, the agency spent $8.0 million on re-appropriated projects and $2.9 million on grant related projects, totaling $10.9 million.

With a capital budget, efforts have turned from contingency planning to assessing the capital program and budget and the timing of project delivery. Plans on how to proceed are being developed and evaluated to ensure the best results for this and next biennium. In the meantime, the agency has begun to hire staff to perform needed work.

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2017-19 Biennium Revenue: As of January 31, 2018, the earned revenue forecast was $107.8 million. In addition, the agency will receive $10 million in Litter Tax revenue this biennium that will be deposited into the PRSA account for a total of $117.8 million in expected revenue.

Collectively, PRSA revenue collections for Discover Pass sales, camping, cabins and other lodging, “opt-out” donations through the Department of Licensing, and other earned revenue are 6.8% above estimates as of January 31, 2018.

Comparing biennium-to-date revenue collections against estimates for the five categories shows: 1) Discover Pass revenue is 6.4% above projection 2) Revenue from camping is 5.6% above projection 3) Cabins and other lodging revenue are 5.9% above projection 4) Donations through the “opt out” program are 5.3% above projection 5) Other revenue sources are 11.5% above projection

In February, the earned revenue forecast was increased by $800K bringing the total forecast to $108.6 million. The forecast adjustment was due primarily to the continued strength in Discover Pass sales (13.5% year-over-year collections) and a new online processing fee that is collected for Discover Pass sales over the State Parks’ website.

2018 SUPPLEMENTAL BUDGET REQUESTS

Operating and Capital. As of the date this report was written, the agency was waiting for the legislature to pass the 2018 supplemental operating and capital budgets. The expectation is that they will be passed by the last day of regular session which ends on March 8th. To provide the most current information regarding the supplemental budgets, an oral update will be provided during the Commission presentation of this report.

SUPPORTING INFORMATION Appendix 1: 2017-19 Operating and Capital Budget Financial Report Appendix 2: 2017-19 Parks Renewal and Stewardship Account (PRSA) Revenue Summary Appendix 3: Earned Revenue – Collections; Year-Over-Year Comparison Appendix 4: Earned Revenue Forecast – November 2017 Compared to February 2018

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Author/Contact(s): Shelly Hagen, Assistant Director, Administrative Services [email protected], (360) 902-8621

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Reviewer(s): Jessica Logan, SEPA Review: Pursuant to WAC197-11-704, staff has determined that this Commission agenda item is a report and therefore is not subject to State Environmental Policy Act (SEPA) review. Christeen Leeper, Fiscal Review: Report only, no fiscal impact. Michael Young, Assistant Attorney General: Report only, no impact at this time.

Approved for Transmittal to Commission

______Don Hoch, Director

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APPENDIX 1 OPERATING AND CAPITAL BUDGET FINANCIAL REPORT 2017-19 BIENNIUM As of January 31, 2018

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APPENDIX 2 PARKS RENEWAL AND STEWARDSHIP ACCOUNT (PRSA) REVENUE SUMMARY 2017-19 Biennium As of January 31, 2018 Percent Actuals Biennial Estimate Actuals Variance To Over/Under Revenue Category Estimate To Date To Date Date To Date Discover Pass Sales 40,545,000 9,763,300 10,391,949 628,649 6.4% Camping & Related Sources 34,469,000 10,615,300 11,211,164 595,864 5.6% Cabins/Yurts/Other Lodging 5,477,000 1,546,600 1,638,529 91,929 5.9% License Renewal Donations 12,100,000 3,442,900 3,624,235 181,335 5.3% Other * 15,186,000 4,621,600 5,154,656 533,056 11.5% Subtotal 107,777,000 29,989,700 32,020,533 2,030,833 6.8%

Litter Tax 10,000,000 2,916,668 2,916,667 (1) 0.0% Totals 117,777,000 32,906,368 34,937,200 2,030,832 6.2% * Other revenue sources include leases, reservation fees, retreat centers, boat moorage and watercraft launch fees, day use fees, etc.

Percent of Revenue Collected by Source

8.4% Discover Pass Sales 29.7%

Camping Related Sources 32.0% 14.8% 29.7% Cabins/Yurts/Other Lodging 4.7%

License Renewal Donations 10.4% 10.4%

Other 14.8% 4.7%4.7%

32.0%32.0% Litter Tax 8.4%

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APPENDIX 3 EARNED REVENUE – COLLECTIONS YEAR -OVER-YEAR COMPARISON Forecast - FY 2017 FY 2018 % Change Projected Jul '16 - Jan '17 Jul '17 - Jan '18 FY17 to FY18 Growth *** Revenue Category Actuals Actuals Actuals FY17 to FY18

Discover Pass Sales 9,159,918 10,391,948 13.5% 4.5%

Camping & Related Sources * 10,677,109 11,211,164 5.0% 3.1%

Cabins/Yurts/Other Lodging * 1,527,542 1,638,529 7.3% 5.3%

License Renewal Donations 3,973,116 3,624,236 (8.8%) (10.3%)

Other ** 4,857,363 5,154,656 6.1% (4.0%)

Total 30,195,048 32,020,533 6.0% 0.9%

* Camping and Cabins/Yurts/Other Lodging amount are net of sales & lodging taxes. ** Other sources include leases, reservation fees, retreat centers, boat moorage and watercraft launch fees, day use fees, etc. *** As of the November 2018 forecast

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APPENDIX 4 EARNED REVENUE FORECAST NOVEMBER 2017 COMPARED TO FEBRUARY 2018

November February % Revenue Category 2017 2018 Variance Change

Discover Pass Sales 40,545,000 40,939,000 394,000 1.0%

Camping & Related Sources 34,469,000 34,469,000 - 0.0%

Cabins/Yurts/Other Lodging 5,477,000 5,477,000 - 0.0%

License Renewal Donations 12,100,000 12,100,000 - 0.0%

*Other 15,186,000 15,592,000 406,000 2.7%

Total 107,777,000 108,577,000 800,000 0.7%

* Other revenue sources include leases, reservation fees, retreat centers, boat moorage and watercraft launch fees, day use fees, etc.

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Item E-8: Legislative Update - Report

EXECUTIVE SUMMARY: This item reports on the status of issues, and bills affecting State Parks during the 2018 session of the Washington State Legislature. This item advances the Commission’s strategic goal, “Demonstrating that all Washingtonians benefit from their state parks”.

SIGNIFICANT BACKGROUND INFORMATION: The regular session of the 2018 Washington State Legislature began on January 8, 2018. This report will be delivered orally at the March 22nd meeting, providing the Commission with an up to the day briefing on the status of the agency’s legislative agenda, and other legislation that could affect agency programs and policies.

SUPPORTING INFORMATION: None

Author/Contact(s): Daniel Farber, Policy and Governmental Affairs Director [email protected] (360) 902-8504

Reviewer(s): Jessica Logan, SEPA REVIEW: Pursuant to WAC 197-11-704, staff has determined that this Commission agenda item is a report and therefore is not subject to State Environmental Policy Act (SEPA) review. Shelly Hagen, Fiscal Review: Report only, no impact at this time. Michael Young, Assistant Attorney General: Report only, no impact at this time.

Approved for Transmittal to Commission

______Don Hoch, Director

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